The Hague Convention of 23 November 2007 on the International Recovery of Child Support and Other Forms of Family Maintenance - Comments on its objectives and some of its special features by William Duncan, Deputy Secretary General of the Hague Conference on Private International Law** Introduction The Twenty-First Session of the Hague Conference on Private International Law closed in The Hague on 23 November 2007 with the signing of the Final Act of the Session, 1 which contains the text of the Convention of 23 November 2007 on the International Recovery of Child Support and Other Forms of Family Maintenance, and the Protocol of 23 November 2007 on the Law Applicable to Maintenance Obligations. The Final Act has been signed by seventy States,2 as well as the European Community, which is now a Member of the Hague Conference in its own right.3 Both of the new instruments were agreed by consensus. On the same day the United States of America formally signed the new Convention.4 The completion of the two new instruments is the culmination of work which had begun in the 1990‟s with two formal reviews5 of the existing Hague Conventions concerning maintenance6 and, of the New York Convention of 20 June 1956 on the Recovery Abroad of Maintenance. The This article builds on a shorter description of the Convention by the same author, “The New Hague Convention on the International Recovery of Child Support and Other Forms of Family Maintenance”, in International Family Law, Vol. 64, Issue 1, March 2008, pp. 13-17. ** Special thanks to Sandrine Alexandre (Legal Officer) and Laura Molenaar (Administrative Assistant) for their help with the footnotes. 1 See Final Act of the Twenty-First Session, The Hague, 23 November 2007, at <www.hcch.net> under “Conventions”, then Convention #38, then “Final Act of the Twenty-First Session”. 2 Fifty-seven signatures were by Members of the Hague Conference, and a further fourteen were by non-Members. The full list of signatures is as follows: Albania, Argentina, Australia, Austria, Belgium, Brazil, Bulgaria, Canada, Chile, China, Croatia, Czech Republic, Denmark, Ecuador, Egypt, Estonia, European Community, Finland, The former Yugoslav Republic of Macedonia, France, Germany, Greece, Hungary, Ireland, Israel, Italy, Japan, Jordan, Latvia, Lithuania, Luxembourg, Mexico, Monaco, Morocco, Norway, the Netherlands, New Zealand, Peru, Poland, Portugal, Republic of Korea, Romania, Russian Federation, Serbia, Slovakia, Slovenia, South Africa, Spain, Sri Lanka, Sweden, Switzerland, Ukraine, the United Kingdom, the United States of America, Uruguay and Venezuela. The following Observers (non-Member States) have also signed the Final Act: Algeria, Burkina Faso, Colombia, Costa Rica, Dominican Republic, Guatemala, Haiti, India (as of 13 March 2008 a Member State of the Hague Conference), Indonesia, Iran, Philippines and Vietnam. The following intergovernmental organisations attended: Commonwealth Secretariat and Mercosur. The following non-governmental organisations attended: International Society of Family Law, International Association of Women Judges (IAWJ), International Bar Association (IBA), Defence for Children International (DCI), National Child Support Enforcement Association (NCSEA), International Social Services (ISS) and the International Union of Latin Notaries (UINL). 3 Member since 3 April 2007. 4 See the Hague Conference website < www.hcch.net > under “News & Events”, then “2007”. 5 Special Commissions of November 1995 and April 1999 on the operation of the Hague Conventions relating to maintenance obligations and of the New York Convention of 20 June 1956 on the Recovery Abroad of Maintenance. 6 The Hague Convention of 24 October 1956 on the law applicable to maintenance obligations towards children; Hague Convention of 15 April 1958 concerning the recognition and enforcement of decisions relating to maintenance obligations towards children; Hague Convention of 2 October 1973 on the Recognition and Enforcement of Decisions relating to Maintenance Obligations; and Hague Convention of 2 October 1973 on the Law Applicable to Maintenance Obligations. Permanent Bureau | Bureau Permanent 6, Scheveningseweg 2517 KT The Hague | La Haye The Netherlands | Pays-Bas telephone | téléphone +31 (70) 363 3303 fax | télécopieur +31 (70) 360 4867 e-mail | courriel firstname.lastname@example.org website | site internet http://www.hcch.net C:\Docstoc\Working\pdf\ca2cb9ab-95f2-47dc-ba93-3e51f23564be.doc 2 formal negotiations had begun in 2003, and involved five Special Commission meetings 7 prior to the final Diplomatic Session. The subject matter of this Article is the Convention rather than the Protocol, though it is appropriate to point out that the conclusion by consensus of the Protocol, which has thoroughly revised, and is likely eventually to replace, the Hague Conventions of 1956 8 and 19739 concerning applicable law, was itself a remarkable achievement which owed much to Professor Andrea Bonomi who led the Working Group10 which prepared the texts for consideration by the Special Commission and the Diplomatic Session, who chaired Commission II of the Session which agreed the final text, and who moreover, as Rapporteur, will be author of the official report on the text of the Protocol. Negotiations on the Convention benefited from expertise from around the world. Particular mention should be made of Ms Maria Kurucz (Hungary), who was Chairperson of Commission I of the Diplomatic Session, Professor Fausto Pocar, who chaired early meetings of the Special Commission, and Ms Jan Doogue (New Zealand), the Chairperson of a very busy Drafting Committee.11 The work of the Special Commission was supported by the Administrative Co- operation Working Group (ACWG)12 which, between the negotiating sessions, was able to address, among other things, some of the practical issues surrounding the processing of international claims. The parallel work of the Forms Working Group13 was crucial, not only through its work in developing standardised forms for use under the Convention, but also by the attention which it paid to ensuring that texts both of the Convention and the forms were medium neutral and facilitated the employment of modern information technology to enable simplified, swift and low cost communications under the Convention.14 7 Special Commission meetings on the International Recovery of Child Support and other Forms of Family Maintenance were held from: (1) 5-16 May 2003; (2) 7-18 June 2004; (3) 4-15 April 2005; (4) 19-28 June 2006; (5) 8-16 May 2007. 8 Hague Convention of 24 October 1956 on the law applicable to maintenance obligations towards children. 9 Hague Convention of 2 October 1973 on the Law Applicable to Maintenance Obligations. 10 Members of the Working Group on Applicable Law were as follows: Sheila Bird (Australia), Andrea Bonomi (Switzerland), Alegría Borrás (Reporter), Antoine Buchet (European Commission), Raquel Correia (Portugal), Nadia De Araujo (Brazil), Edouard De Leiris (France), Gloria DeharT (United Status of America), Maria Del Carmen Parra Rodriguez (Spain), Jennifer Degeling (Permanent Bureau), Jérôme Deroulez (France), Michèle Dubrocard (France), Christelle Gavard (Permanent Bureau), Caroline Harnois (Permanent Bureau), Shinichiro Hayakawa (Japan), Michael Hellner (Sweden), Sarah Khabirpour (Luxembourg), Åse Kristensen (Norway), Philippe Lortie (Permanent Bureau), J. David McClean (United Kingdom), Alberto Malatesta (Italy), Tracy Morrow (Canada), Angelika Schlunck (Germany), Ivana Radic (Permanent Bureau), Andrea Schulz (Permanent Bureau), Werner Schütz (Austria), Marta Sosnovcová (Czech Republic), Robert Spector (Unites States of America), A.V.M. (Teun) Struycken (Netherlands), Lixiao TIAN (China), Dorothée van Iterson (Netherlands), Hans van Loon (Permanent Bureau), Rolf Wagner (Germany). 11 Members of the Drafting Committee were as follows: Stefania Bariatti (Italy), Paul Beaumont (United Kingdom), Alegría Borrás (Spain), Antoine Buchet (European Commission), Mary Helen Carlson (United States of America), Jan Doogue (New Zealand), Cecilia Fresnedo de Aguirre (Uruguay), Denise Gervais (Canada), Miloš Hatapka (European Commission), Robert Keith (United States of America), Mária Kurucz (Hungary), Edouard de Leiris (France), Maria Elena Mansilla y Mejia (Mexico), Namira Negm (Egypt), Lixiao Tian (China). 12 The Administrative Co-operation Working Group (ACWG) was chaired by Mary Helen Carlson (United States of America), Mária Kurucz (Hungary), Jorge Aguilar Castillo (Costa Rica). Two sub-committees were established by the ACWG. The Sub-committee on “Country Profiles” chaired by Danièle Ménard (Canada) and Ann Barkley (NCSEA), and the Sub-committee on “Monitoring and Review of the Operation and Implementation of the Convention” chaired by Mária Kurucz (Hungary) and Elizabeth Matheson (USA). 13 Members of the Forms Working Group were as follows: Shireen Fisher (International Association of Women Judges, IAWJ) (Co-Chair), Zoe Cameron (Australia) (Co-Chair), Jorge Aguilar Castillo (Costa Rica), Philip Ashmore (United Kingdom), Ana-Sabine Boehm (Deutsches Institut für Jugendhilfe und Familienrecht, DIJUF), Edouard de Leiris (France), Hilde Drenth (Netherlands), Kay Farley (NCSEA), Meg Haynes (United States of America), Helena Kasanova (Slovakia), Katie Levasseur (Canada) (Civil Law), Tracy Morrow (Canada) (Common Law), Anna Svantesson (Sweden), Hans-Michael Veith (Germany), Patricia Whalen (IAWJ), Christina Wicke (Germany), William Duncan (Permanent Bureau), Philippe Lortie (Permanent Bureau) as the principal facilitator, Sandrine Alexandre (Permanent Bureau), Jenny Degeling (Permanent Bureau) (Rapporteur). 14 This aspect is covered fully in a separate article by Philippe Lortie. 3 The new Convention in context It was the Special Commission on Maintenance Obligations of April 1999, which had concluded that work on a new global instrument on the international recovery of maintenance was needed. The reasons for this conclusion have been summarised as follows: “- disquiet at the chronic nature of many of the problems associated with some of the existing Conventions; - a perception that the number of cases being processed through the international machinery was very small in comparison with real needs; - a growing acceptance that the New York Convention of 1956, though an important advance in its day, had become somewhat obsolete, that the open texture of some of its provisions was contributing to inconsistent interpretation and practice, and that its operation had not been effectively monitored; - an acceptance of the need to take account of the many changes that have occurred in national (especially child support) systems for determining and collecting maintenance payments, as well as the opportunities presented by advances in information technology; - a realisation that the proliferation of instruments (multilateral, regional and bilateral), with their varying provisions and different degrees of formality, were complicating the tasks of national authorities, as well as legal advisers.”15 Put simply, the challenge which confronted the negotiators of the new Convention was to usher in a new era in the international recovery of maintenance – one in which cross-border procedures, particularly in child support cases, would be simplified, swift, accessible, cost effective and in tune with modern technologies. How the Convention pursues its objectives The object of the Convention is “to ensure the effective international recovery of child support and other forms of family maintenance”.16 The new Convention pursues these objectives by a combination of means: - an efficient and responsive system of co-operation between Contracting States in the processing of international applications; - a requirement that Contracting States make available applications for establishment and modification, as well as for recognition and enforcement, of maintenance decisions; - provisions which ensure effective access to cross-border maintenance procedures; - a broadly based system for the recognition and enforcement of maintenance decisions made in Contracting States; - expedited and simplified procedures for recognition and enforcement; and - a requirement of prompt and effective enforcement. The Convention pays attention to many of the matters of detail which in practice can affect the efficiency with which international claims are pursued, for example, language requirements, 17 15 William Duncan, “The Development of the New Hague Convention on the International Recovery of Child Support & Other Forms of Family Maintenance”, Family Law Quarterly, Vol. 38, No 3, Fall 2004, pp. 663-687 at 665. See also Report and Conclusions of April 1999 on the operation of the Hague Conventions relating to maintenance obligations and of the New York Convention of 20 June 1956 on the Recovery Abroad of Maintenance at: <www.hcch.net> under “Conventions” then “All Conventions”, then Convention N°38, then “Preliminary Documents”. 16 Art. 1, Chapeau. 17 Art. 44. 4 standardised forms18 and exchange of information on national laws.19 It also allows and encourages the use of new information technologies to reduce the costs and delays which have in the past plagued international claims. In accordance with the mandate for the negotiations, the new Convention builds on the strengths of existing international instruments, in particular the existing Hague Conventions, 20 the New York (United Nations) Convention of 1956 on the Recovery Abroad of Maintenance, as well as several regional and inter-state or inter-provincial instruments and arrangements.21 Scope of the Convention Early discussions in the Special Commission showed that a substantial number of States wished to retain the broad scope for the new Convention that had been a feature of the two Hague Conventions of 1973.22 These Conventions applied to maintenance obligations arising from family relationships in general and included within their scope both child and spousal support. On the other hand, several States argued that, while the recovery of spousal support was an important obligation, the new Convention would better concentrate on child support. It was pointed out that several States had introduced special procedures for child support enforcement, and that there was a greater willingness at the political level to devote resources to recovery of child support. If child support and spousal support were placed on the same level, there was a danger that this might result in less generous services and assistance in child support cases. In the end a compromise was struck which places child support at the core of the Convention,23 which gives an important though lesser status to spousal support, and which, in relation to obligations arising from other family relationships, gives States the option of extending the provision of the Convention on an à la carte and reciprocal basis. The whole of the Convention applies on a mandatory basis to child support cases. 24 Applications for the recognition and enforcement of spousal support when made with a claim for child support also come within the core scope of the Convention,25 and all chapters of the Convention extend to them. Other claims for the recognition and enforcement of spousal support (i.e., when not made in conjunction with a claim for child support) come within the compulsory scope of the Convention, but do not benefit from the provisions of Chapters II and III26 which establish the system of administrative co-operation via Central Authorities, and which also contain generous provisions for assistance in child support cases (see below). 18 A mandatory transmittal form will accompany all applications under Chapter III (Art. 12(2)). Forms for the applications themselves, whose preparation is almost complete, are recommended rather than mandatory (Art. 11(4)). 19 Art. 57. See below the Pre-Convention requirements – provision of information on national laws and procedures section of this article. 20 Hague Convention of 24 October 1956 on the law applicable to maintenance obligations towards children; Hague Convention of 15 April 1958 concerning the recognition and enforcement of decisions relating to maintenance obligations towards children; Hague Convention of 2 October 1973 on the Recognition and Enforcement of Decisions relating to Maintenance Obligations and Hague Convention of 2 October 1973 on the Law Applicable to Maintenance Obligations. 21 Convention on Jurisdiction and Enforcement of Judgments in Civil and Commercial Matters; Council Regulation (EC) No 44/2001 of 22 December 2000 on Jurisdiction and the Recognition and Enforcement of Judgments in Civil and Commercial Matters; Inter-American Convention of 15 July 1989 on support obligations; the Uniform Interstate Family Support Act (USA) of 1996; in Canada legislation such as the Inter-Jurisdictional Support Orders Act 2001 (Manitoba) based on uniform legislation; Reciprocal Enforcement of Maintenance Orders (REMO). 22 Art. 1 (Enforcement) and Art. 1 (Applicable law). 23 This is reflected in the title of the Convention. 24 In the words of Art. 2(1) a), “the maintenance obligations arising from a parent-child relationship towards a person under the age of 21.” However, a Contracting State may by reservation reduce the age to 18 (Art. 2(2)). 25 Art. 2(1) b). 26 Art. 2(1) c). 5 In addition, Contracting States may by declaration bring within the scope of the Convention (or any part of it) any other maintenance obligations arising from a family relationship, parentage, marriage or affinity.27 For example, a particular State may declare that the Convention, or any part of it, extends to certain obligations in respect of children who are over 21, or in respect of vulnerable adults, or in respect of parents or siblings, or in respect of certain forms of partnership where these are seen as “arising from a family relationship”. A State is also free to declare that the provisions of Chapters II and III will extend to all spousal support obligations. Where such declarations are made they will operate on a reciprocal basis, in the sense that mutual obligations between two States will only arise to the extent that their declarations correspond. During the negotiations an effort was made by certain Latin American States to bring maintenance obligations in respect of vulnerable persons within the compulsory scope of the Convention. A move in this direction is made in Article 37(3), which covers direct requests (explained below) for recognition and enforcement of certain decisions granting maintenance to a vulnerable adult. The importance which States attach to this matter is further reflected in a recommendation made at the Diplomatic Session that the Hague Conference should in future consider the feasibility of developing a Protocol concerning the international recovery of maintenance in respect of vulnerable persons.28 As in the 1973 Hague Conventions, the role of public bodies acting in place of a creditor, or to whom reimbursement of maintenance is owed, is covered by the new Convention.29 Finally, a provision of the 1973 Hague Conventions which ensured that a child “who is not legitimate”30 would benefit equally under those Conventions, has been retained, but using more modern terminology.31 Some anxieties had been expressed in the Special Commission, on the part of certain States whose laws are based on “Shariah”, that this provision might make it difficult for them to ratify the Convention. Nevertheless, there was a clear consensus in the Diplomatic Session for re-iterating the principle of non-discrimination. Emphasis on procedural matters From a private international law perspective, and in terms of the general evolution of Hague Conventions, a number of features of the new Convention are of particular interest. There is first a strong emphasis on procedural matters. This begins with the obligations on Contracting States to make a wide range of applications for the recovery of maintenance available within internal law, some to creditors, and others to debtors.32 These go beyond the usual requirement to provide for the recognition and enforcement, or recognition of foreign decisions; they include applications for establishment and modification of maintenance decisions. The application contents are spelled out in some detail. 33 And the processing of international applications through the Central Authority structures is made subject to rather detailed requirements designed to ensure that cases are handled promptly and responsively. 34 The circumstances in which a Central Authority may refuse to process an application are tightly controlled. This emphasis on procedural matters derives partly from experience of delays in the processing of maintenance applications under existing instruments, particularly the New York Convention of 1956,35 and partly from experience with Hague Conventions dealing other forms 27 Art. 2(3). 28 See the Final Act of Twenty-First Session, para. C.9. 29 See Chapter VII. 30 Art. 1 in both Conventions. 31 Art. 2(4). 32 Art. 10. 33 Art. 11. 34 Art. 12. 35 For a full listing of the “problems of process”, see W. Duncan, “Towards a New Global Instrument on the International Recovery of Child Support and other Forms of Family Maintenance”, Prel. Doc. No 3 of April 2003 for the attention of the Special Commission of May 2003 on the International Recovery of Child Support and Other Forms of Family Maintenance, at para. 25. 6 of application, such as applications for the return of a child under the 1980 Hague Convention. In this respect one of the more remarkable features of the new Convention is the effort made to harmonise, at least partially, the procedures for recognition and enforcement of a foreign maintenance decision. The approach adopted for example by the 1973 Hague Convention (Enforcement), under which such procedures were left largely to national law,36 has been set aside in favour of a more prescriptive approach which recognises that cumbersome, costly and slow procedures have been a major reason for under utilisation of the international machinery in the past. These procedures are described in more detail below. The processing of applications Most applications for child support are likely to be processed through the system of Central Authorities established under the Convention. In many countries, the case-specific functions of the Central Authority will be carried out by child support agencies or authorities operating centrally or regionally.37 The primary role of such authorities will be to transmit and receive applications and to initiate or facilitate the institution of proceedings. 38 Other functions39 include assistance in locating a debtor or creditor or obtaining information about the resources of either; encouraging amicable solutions with a view to voluntary payment; facilitating ongoing enforcement, as well as the collection and transfer of maintenance payments; assistance in establishing parentage where necessary for support purposes; and help in obtaining any necessary provisional measures. These functions will mostly be carried out in the context of a specific maintenance application, but certain services (e.g., location of the debtor or assets) may be requested in order to determine whether it is worth bringing an application.40 The applications41 in respect of which Central Authority services are available to a creditor include recognition or enforcement of an existing decision, enforcement of a decision recognised in the requested State, establishment of a maintenance decision, or where necessary parentage, and modification. Establishment may be applied for where there is no existing decision (e.g., if the creditor decides to make an international application in the country where the debtor resides), or where recognition of an existing decision is not possible. It is noteworthy that a debtor may also avail of Central Authority services in making an application for modification or to obtain recognition of an existing decision. Chapter III of the Convention also sets out documentary requirements as well as other procedural requirements which are designed to promote speed and efficiency in the processing of applications. Effective access to procedures The Convention is remarkable for the emphasis which it places on “effective access” to procedures. Here the influence was not only the experience of the operation of previous Conventions (the provision of the New York Convention on legal assistance had been weak leading to disparate State practice),42 but also the experience under national systems of child support or maintenance recovery. The United States of America was particularly firm, at the outset and during the course of the negotiations, in arguing that the new international system would not work if services to creditors were not provided on a cost-free, or virtually cost-free, basis. It came to be generally understood that even small financial obstacles confronting an impecunious creditor may deter the bringing of an international claim, and that indeed a major 36 Art. 13. 37 Art. 4. 38 Art. 6(1). 39 For the full list see Art. 6(2). 40 Art. 7. 41 Art. 10. 42 See W. Duncan, “Note on the desirability of revising the Hague Conventions on Maintenance Obligations and including in a new instrument rules on judicial and administrative co-operation”, Prel. Doc. No 2 of January 1999 for the attention of the Special Commission of April 1999, p. 24. 7 contributor to the under-utilisation of existing procedures has been their cost. The resultant provisions in the new Convention, particularly with regard to the provision of free legal assistance in child support cases, go much further than any previous Hague Convention. The resulting costs to be borne by Contracting States were viewed in the light of the considerable savings in social support costs than can accrue from the effective enforcement of private support obligations. Early on in the negotiations it was agreed that the services of Central Authorities should in general be provided without cost to the applicant.43 However, discussions on the costs of providing legal assistance were prolonged and difficult and did not reach a conclusion until the final negotiating session. This was not surprising given the resource implications for States, many of which do not have systems of free legal aid in civil cases. The conclusion was in fact quite remarkable and a testimony to the strong wish of all the negotiating Parties to put in place international procedures which are genuinely accessible. The main elements of the agreed package of provisions are in broad terms as follows: 44 (1) All Contracting States will be under an obligation to provide effective access to procedures, including enforcement and appeal procedures, arising from the applications outlined above. (2) One way of doing this will be to provide procedures which are simple and which, with the assistance of the Central Authority, allow an applicant to proceed without the need for further legal assistance. (3) Where legal assistance is needed for a creditor in a child support case, it must be made available free. This applies both to applications for establishment of a decision and for recognition and enforcement.45 A Contracting State may, as an alternative, in cases involving establishment of child support, declare that it will apply a „child-centred‟ means test, i.e., one based on the means of the child rather than the parent.46 (4) In the case of other applications under the Convention which are processed through Central Authorities (i.e., all applications which do not concern child support or applications made by a debtor (e.g., for modification) in respect of child support), the provision of free legal assistance may be made subject to a means or merits test.47 These provisions are ground-breaking and are likely to be key to the successful operation of the Convention. They also provide a stimulus for the introduction by States of simplified, cost- effective and user-friendly national child support systems. Recognition and enforcement of existing decisions The bases for recognising and enforcing maintenance decisions of other Contracting States under the Convention are broad.48 The habitual residence of either the respondent or the creditor in the State of origin when proceedings were initiated, are likely to be the principal bases in practice. However, basing recognition on creditor‟s residence remains a problem for some States, such as the USA, which insist on some nexus between the respondent and the State of origin. For this reason, a reservation in respect of creditor‟s jurisdiction is possible, 49 but any State making such a reservation will in return be obliged to recognise foreign decisions 43 See Art. 8. There is an exception to this general principle in the case of exceptional costs arising from a request for a specific measure under Art. 7. 44 For the details, see Articles 14–17. 45 A rare exception will be in an establishment case where the requested State considers that, on the merits, the application or any appeal is manifestly unfounded (Art. 15(2)). 46 Art. 16. 47 Art. 17. 48 For the full list of bases, see Art. 20. 49 Art. 20(2). 8 made in factual circumstances which confer or would have conferred jurisdiction on its own authorities to award maintenance.50 This compromise has removed one of the barriers which in the past prevented more widespread ratification of the Hague Convention of 2 October 1973 on the Recognition and Enforcement of Decisions relating to Maintenance Obligations. In many other respects the basic rules governing recognition and enforcement are similar to those set out in the 1973 Hague Convention, though some changes are made in the grounds for refusing recognition and enforcement.51 The detailed procedures set out in the new Convention regulating the procedure on an application for recognition and enforcement represent a considerable advance on the 1973 Hague Convention, in which this matter was left to be regulated largely by the law of the State addressed. It is by now well understood that cumbersome procedures at the stage of recognition and enforcement – including any extensive ex officio review – may cause serious delays and costs and place unjustified additional burdens on a creditor. The new procedures will not appear strange to those who are familiar with recent Brussels Regulations, 52 with the UIFSA system in the USA53 or with the Canadian Uniform Act.54 All adopt a similar approach, minimising ex officio review and for the most part placing the burden of raising objections to recognition and enforcement on the respondent. Given that most applications for recognition and enforcement are likely to be uncontested, this leads to a much expedited procedure. The new procedure, which is set out in Article 23, limits ex officio review to the ground of public policy; it rules out submissions by the parties at the initial stage when the foreign decision is registered or declared enforceable; it allows for a challenge by either party to the decision on registration, but within a strict time period and on limited grounds; it also supports, as a general principle, the idea that any further appeal should not have the effect of staying enforcement. Because procedures whereby foreign decisions are registered for enforcement or declared enforceable are not familiar to certain States in which applications for recognition and enforcement go directly to the court for a decision, it proved necessary to provide in the new Convention an alternative procedure on an application for recognition and enforcement, which Contracting States may opt for by declaration.55 This alternative procedure is also designed to ensure that procedures are expeditious, that the grounds on which the court addressed may review a foreign decision of its own motion are limited, and that the onus of raising certain defences will rest on the respondent. However, in these last two respects the alternative procedure is not as strict as the principal procedure. ‘Decisions’ and ‘maintenance arrangements’ The definition of a decision for the purposes of recognition and enforcement includes a settlement or agreement concluded before or approved by a judicial or administrative authority. It may also include automatic adjustment by indexation, a requirement to pay arrears, retroactive maintenance, interest payable and a determination of costs and expenses.56 50 Art. 20(3). 51 Compare Art. 22 of the new Convention with Art. 5 of the Hague Convention of 2 October 1973 on the Recognition and Enforcement of Decisions relating to Maintenance Obligations. 52 See particularly the Brussels I Regulation (Council Regulation (EC) No 44/2001 of 22 December 2000 on Jurisdiction and the Recognition and Enforcement of Judgments in Civil and Commercial Matters (2001) OJ L 12/1). 53 Uniform Interstate Family Support Act (USA) 1996. 54 The Interjurisdictional Support Orders Act 2003. 55 See Art. 24. 56 Art. 19(1). 9 Moreover, the Convention provides for the recognition and enforcement of „maintenance arrangements‟,57 which include agreements as to maintenance drawn up in the form of an authentic instrument or otherwise authenticated by, or concluded or registered or filed with a competent authority. However, to qualify, such an agreement must be enforceable „as a decision‟ in the State of origin. This willingness to include within the scope of recognition a wide range of agreements which have in some way been formalised was motivated by a widespread consensus to accommodate and encourage within the international framework voluntary agreements in respect of maintenance matters. It accords also with the responsibility which Central Authorities will have to encourage amicable solutions with a view to the voluntary payment of maintenance.58 Direct requests Nothing in the Convention prevents an applicant from making an international application directly to the court or other competent authority in the requested State, 59 assuming as is usually the case that the internal law of that State allows this. For example, an application for recognition and enforcement may be made, usually with the assistance of private counsel, without employing the mediating Central Authority procedures. The broad bases for recognition and the expedited procedures for recognition and enforcement outlined above will generally apply in such cases. However, the new generous regime of free legal assistance in child support cases, as well as the more general principle of effective access to procedures, is confined to applications which are channelled through the Central Authorities. Enforcement under internal law Another traditional preserve of national or internal law into which the new Convention tentatively advances is that of enforcement. Lack of effective enforcement procedures or measures under national law has proved to be something of an Achilles‟ heel in relation to certain Hague Conventions such as the 1980 Convention. In the case of that Convention efforts are being made to address the shortcomings through encouragement of best practices. 60 In the case of the new Convention many delegations felt that this would not be sufficient. There was a real concern that carefully crafted procedures for recognition and enforcement could be frustrated if enforcement under national law was in the end not effective. On the other hand, certain delegations were opposed to excessive intrusion into national law. The result is the compromise which appears in Chapter VI. Enforcement is to be “prompt”61 and the enforcement measures made available must be “effective”.62 The burden that is imposed on an applicant when a separate application for enforcement is required is removed. Also, the requirements concerning the provision by Contracting States of “effective access” to procedures (see below) extend to enforcement procedures. However, the Convention does not go so far as to stipulate that specific measures of enforcement should be made available. Instead, it takes the unusual course of providing an illustrative list63 of possible enforcement measures. This includes, in addition to some of the more familiar techniques, tax refund withholding, credit bureau reporting and the denial, suspension or revocation of licenses, including driving licenses. 57 Art. 30. 58 Art. 6(2) d). 59 Art. 37. 60 See A. Schulz, “Enforcement of orders made under the 1980 Convention - Towards principles of good practice”, Prel. Doc. No 7 of October 2006 and “Enforcement of orders made under the 1980 Convention - a comparative legal study”, Prel. Doc. No 6 of October 2006, both documents drawn up for the attention of for the attention of the Fifth Meeting of the Special Commission to review the operation of the Hague Convention of 25 October 1980 on the Civil Aspects of International Child Abduction. 61 Art. 32(2). 62 Art. 34(1). 63 Art. 34(2). 10 Applicable law rules In this overview of some major features of the new Convention, something should also be said about what is not included in the Convention. From a private international law perspective, the two glaring examples are the absence of a general regime of rules governing the law applicable to maintenance obligations and the almost complete absence of rules on direct jurisdiction. The Convention does in fact contain specific applicable law rules relating to (a) the right of a public body to act in place of a creditor or seek reimbursement of benefits provided to the creditor, 64 (b) limitation periods for the enforcement of arrears,65 and (c) the eligibility of a child for maintenance in very specific and limited circumstances.66 On the other hand the general regime on applicable law is left for the Protocol. Why is this so in a Convention which was intended to be “comprehensive” in nature?67 It was obvious from the beginning of the negotiations that a substantial number of States, particularly those from the common law tradition, would not favour an obligatory regime of applicable law. So, even if the applicable law regime had been included in the main body of the Convention it would have been optional and subject either to an opt-in or opt-out mechanism. The decision to draft a separate Protocol came relatively late in the negotiating process, as did the decision that the Protocol may be ratified or acceded to by a State which is not a Party to the main Convention.68 The arguments which underlay the different positions on applicable law are complex. For those States which favour a general applicable law regime governing maintenance obligations there are several justifications. The first is that applicable law rules are needed to ensure justice in individual cases and in particular to weight the balance in favour of the creditor. Applicable law rules are also seen as a counter-weight to forum shopping. This is viewed as particularly important vis-à-vis a Convention which contains no rules on direct jurisdiction. Moreover, the States which favour a general applicable law regime have had long experience with the application of foreign law in maintenance cases (for example, under the Hague Conventions of 1956 and 1973 concerning applicable law), and regard the process as normal and practicable. On the other hand, the States which favour the application of forum law in maintenance cases, regard this approach as more practicable and cost effective. They are concerned about the complexity and therefore the practicality and cost of applying what are sometimes complicated foreign rules, especially those relating to the quantification of maintenance. There is also a concern that complex rules on applicable law may be difficult to reconcile with the trend towards simplified low-cost procedures for the recovery of child support, and that their adoption could even inhibit the development of such systems. Rules on direct jurisdiction The reasons for the decision, taken early on in the negotiations, not to include rules on direct jurisdiction have been fully explained elsewhere.69 In short, the view was accepted that any practical benefits to be derived from the inclusion of uniform rules were far outweighed by the cost of embarking on a long, complex and possibly futile attempt to reach consensus. The gap between those systems, which allow jurisdiction based on the creditor‟s residence and those systems which require some link between the debtor and the forum was too wide to bridge at this time. Equally, differences in the approach to modification jurisdiction would have been difficult to resolve. It may well be that the Hague Conference will return to this issue in the future and consider a Protocol on direct jurisdiction when the time is ripe. It has to be admitted that the problems raised by conflicting decisions, especially where modification of an original decision has occurred, are likely to increase if, as is hoped, the new Convention leads to a 64 Art. 36(2). 65 Art. 32(5). 66 I.e. in proceedings for the establishment of a child support order where an existing foreign order cannot be recognised by virtue a reservation in respect of certain bases for recognition and enforcement. See Art. 20(5). 67 See the formal mandate of the negotiations which is included in the Final Act for the Nineteenth Session 2002 in Proceedings of the Nineteenth Session, Tome I, Miscellaneous Matters. 68 Protocol, Art. 23. 69 See W. Duncan, “Jurisdiction to Make & Modify Maintenance Decisions. The Quest for Uniformity”, in Intercontinental Cooperation through Private International Law: Essays in Memory of Peter E. Nygh, pp. 89-105. 11 rapid increase in the number of applications for recognition and enforcement. The Convention contains some provisions which partially address the problem of conflicting decisions. 70 It is difficult to conceive of a general solution without developing a comprehensive set of rules on jurisdiction to make or modify maintenance decisions.71 Pre-Convention requirements – provision of information on national laws and procedures Another unusual feature of the Convention is the more extensive requirements for the provision of information on national laws and procedures at the time of ratification or accession. These requirements, which are to be found in Article 57, go well beyond the more traditional obligation to give contact details of Central Authorities, or other bodies performing functions under a Convention. In this case the requirement is to provide a description of laws and procedures concerning maintenance obligations, a description of how the newly Contracting State will meet its obligations under Article 6 (which concerns the functions of Central Authorities), a description of how it will provide effective access to procedures as required by Article 14, as well as a description of its enforcement rules and procedures. The reasons for these requirements are three-fold. First, it was felt that the authorities in the different Contracting States would need this information in order to co-operate among themselves fully and in order for the Convention to work effectively. The information would also be needed as a basis for providing sound advice to an applicant or prospective applicant concerning the procedures that will apply in the State to which an application is addressed, or indeed about the prospects of success. Secondly, and more unusually, the furnishing of information, particularly in respect of measures that will be taken to meet obligations under Article 6, was seen as compensating in some measure for the rather flexible language in which Article 6 obligations are expressed. Thirdly, there was a view that a pre-ratification / accession requirement for the provision of information would encourage States to consider more carefully and in more detail how to implement the Convention effectively within their own systems. The importance of these requirements concerning information provisions has been further underlined by the detailed work that has already been carried out to develop a standardised format for the provision of such information - the so-called “Country Profile”.72 This standardised form will facilitate and simplify the task of information provision which, at an early stage in the negotiations, was regarded by some delegates as too onerous for States and as a possible deterrent to ratifications and accessions. Post-Convention requirements – monitoring and review If the new Convention is unusual for its focus on pre-Convention requirements, the negotiations as a whole were similarly striking for the early concern which was expressed concerning post-Convention matters. There was early recognition of the need to consider in some detail the measures that would be needed to ensure that the new Convention will be implemented effectively in Contracting States, that it will be applied consistently and that its operation will be monitored and reviewed on a regular basis. This recognition flowed not only from experience with other Hague Conventions but also from the knowledge that the 1956 New York Convention, despite its many ground-breaking features, had suffered from the lack of any organised system of monitoring. This had contributed in particular to the many divergences, which had developed in the way it was being interpreted and applied in Contracting States. 73 The establishment of a group on Monitoring and Review, as a sub-committee of the Administrative Co-operation Working Group at an early stage in the negotiations on the new Convention was a mark of the importance attached to this matter. 74 The text of the Convention 70 See particularly Art. 8, which limits the fora available to a debtor seeking modification of an existing order, and Art. 22 d) dealing with “incompatible” decisions. 71 This was a principal motivation for the development in the United States of America of UIFSA. 72 Referred to in Art. 57(2). 73 See W. Duncan, “Towards a New Global Instrument on the International Recovery of Child Support and other Forms of Family Maintenance”, at footnote 35 above, Chapter II. 74 See “Report of the Administrative Co-operation Working Group”, Prel. Doc No 34 of October 2007 for the attention of the Twenty-First Session of October 2007. 12 itself, in addition to the now familiar provision concerning the convening at regular intervals of a Special Commission to review the practical operation of the Convention,75 contains a reference to the development of good practices and requires Contracting States to co-operate with the Permanent Bureau in gathering information, including statistics and case law, concerning the practical operation of the Convention.76 The Convention also contains a provision which requires that, in its interpretation, regard should be had to its international character and to the need to promote uniformity in its application.77 Conclusion The negotiations for the new Convention throughout the four years were conducted with vigour and commitment by States from all regions of the world. This work was supplemented by the continuing efforts of a standing committee on administrative co operation which has already put in place some of the building blocks for the establishment of an effective network of Central Authorities. As indicated above, a great deal of thought has also already been given by the negotiators, as well as the Permanent Bureau, to the measures that are needed to ensure the effective and rapid implementation of the Convention, as well as for the eventual monitoring and review of its operation. The Explanatory Report on the Convention is in preparation. A Guide to Good Practice is to be drawn up on implementation of the Convention, as well as a handbook for case workers on its practical operation. Work, which is already advanced, will continue on the development of standardised forms for applications under the Convention, and on the country profile mentioned above. Work will also continue on the development of an automated case- management system which will further assist co operation, efficiency and consistency in the processing of applications. All of this work is being carried out with a view to exploiting to the maximum the opportunities presented by new technologies. The final day of the Diplomatic Session witnessed a general spirit of optimism among the States, the Organisations and the individuals78 involved. The new Convention does not solve all the problems; further work may become necessary, by means perhaps of a Protocol, on uniform standards of jurisdiction, in order to tackle the problems that may arise from multiple decisions, and work needs to be done to develop efficient methods for the cross-border transfer and conversion of maintenance payments. Nevertheless, a major first step has been taken towards creating an international system which will be efficient, fair and accessible. 75 Art. 54(1). 76 Art. 54(2). 77 Art. 53. Cf. Art. 16 of the Hague Convention of 22 December 1986 on the Law Applicable to Contracts for the International Sale of Goods, Art. 13 of the Hague Convention of 5 July 2006 on the Law Applicable to Certain Rights in respect of Securities held with an Intermediary and Art. 23 of the Hague Convention of 30 June 2005 on Choice of Court Agreements. The principle draws on Art. 7(1) of the United Nations Convention on Contracts for the International Sale of Goods of 11 April 1980. 78 269 delegates were involved in the final round of negotiations.