Submission - National Family Violence Prevention Legal Services

Introduction

TheNationalAboriginalFamilyViolencePreventionLegalServicesForum(‘NationalFVPLSForum’)welcomestheopportunitytorespondtotheexposuredraftoftheFamilyLawAmendment(FamilyViolenceandOtherMeasures)Bill2017(‘theBill’)anditsaccompanyingPublicConsultation Paper(‘theConsultationPaper’).

AboriginalandTorresStraitIslanderpeopleexperiencefamilyviolenceatsignificantlyhigherratesthanotherAustraliansandaredisproportionatelyover-representedin theAustralianlegalsystem.AboriginalandTorresStraitIslanderwomen,inparticular,havebeenfoundtobethemostlegallydisadvantagedgroupinAustralia.[1]IncomparisonwithotherAustralianwomen,Aboriginalwomenare34timesmorelikelytobehospitalisedasaresultoffamilyviolence[2]and10 timesmorelikely tobekilledasa result ofviolentassault.[3]

FamilyViolencePreventionLegalServices(‘FVPLSs’)provideculturallysafeandspecialisedlegalassistancetoAboriginalandTorresStraitIslandervictims/survivorsoffamilyviolencethroughourholistic,wrap-aroundservicemodel.FamilylawisoneofthecorepracticeareasofFVPLSs,alongwithfamilyviolenceandchildprotectionlaw.AlmostallFVPLSfamilylawclientsareengagedinparentingorchildrelatedmatters,includingparentingplans,residency(or“liveswith”orders),contact(or“timespent”)ordersandchildsupport.Forourclients,thesecasesariseagainst a backdropoffamily violenceandmore than90%of ourclientsarewomen.

WesternAustralianFVPLSshaveauniqueinteractionwiththeFamilylawsystem.Astate-basedFamilyCourtoperatesinWesternAustraliawhichseekstodelivera“unifiedjurisdiction”4[4]undertheoperationofboththefederallegislationoftheFamilyLawAct1975aswellasthestateFamilyCourtAct1997.

Thefollowingsubmissiondoesnotattempttorespondtoeveryelementoftheproposedamendments.Instead,thissubmissionurgestheAttorney-General’sDepartmenttoconsideranumberofkeyissues ofimportancetoAboriginalandTorresStraitIslandervictims/survivors offamily violence,predominantly women and theirchildren.Insummary,thoseissuesare:

Concernsabouttheproposedexpansionoffamilylawjurisdictiontostateandterritorycourts.Thisincludes:challengesforMagistratesandChildren’sCourtJudgesinexercisingfamilylawpowers,particularlywiththeaddedcomplexitiesandlegislativerequirementsofacaseinvolvingAboriginaland/orTorresStraitIslanderchildrenandfamilies;andunintendedadverseimpactsonthesafetyandwellbeing ofAboriginalvictims/survivorsof family violenceand thebest interestsof theirchildren;
Thecriticalimportanceofaccesstoculturallysafefamilylawadvice,assistanceandcommunitylegaleducationforAboriginalandTorresStraitIslandervictims/survivors offamilyviolencetoensuretheycanunderstandandaccesstheirlegalrightsandachievesafety;

Theneedforjudicialtrainingaccompanyingtheseamendmentstoincludeculturalcompetencytrainingandspecifictrainingconcerningtheneeds,experiencesandbarriersfacedbyAboriginalvictims/survivorsoffamilyviolenceinaccessingthefamilylawsystem;
The need for improvedtrainingand systemsto addresscurrentpoorpoliceresponsestotheenforcementofcourtordersrelatingtofamilyviolenceagainstAboriginalandTorresStrait Islanderpeople,predominantly women and children;
Theneedtoremoveallavenuesavailableinthefamilylawsystemforperpetratorsoffamily violencetocommitfurther abuseagainsttheir victims;
Theneedtoequalisetheenforcementoftheproposednewfamilylawpersonalprotectioninjunctionsandstateandterritoryfamilyviolenceordersandclarifytheirinteractioninlight of thepending national DVOscheme; and
Thechronicunder-fundingandfundinguncertaintyofFVPLSsandtheneedforadditionalresourcingtomeettheincreaseddemandforculturallysafefamilylawassistancethatwillresult fromthese amendments.

InresponsetotheseissuestheNationalFVPLSForummakesanumberofrecommendations,whicharedetailedattheendof eachsection of thissubmission.

Finally,inadditiontothecommentsandrecommendationscontainedwithinthissubmission,theNational FVPLSForumreferstheAttorney-General’sDepartment tothe NationalFVPLSForum’ssubmissiontothe2015FamilyLawCouncilreferenceonFamilieswithComplexNeedsandtheIntersectionof theFamilyLaw and Child ProtectionSystems.[5]

AbouttheNationalFVPLSForum

TheNational FVPLSForumiscomprised of 14Family ViolencePrevention LegalServices(FVPLSs)memberorganisationsacrossthecountrythat provideculturally safelegalassistanceand support toAboriginaland TorresStraitIslander victim/survivorsof family violence–predominantly women and children.They alsodeliveressentialcommunity legaleducation andearlyintervention and prevention activities.TheForumwasestablished inMay 2012 and aimstowork in collaboration acrossitsmemberFVPLSservicestoincreaseaccesstojusticeforAboriginalandTorresStrait Islandervictims/survivorsof family violence.

National Forummembersare:

AboriginalFamilyViolencePreventionandLegalServiceVictoria(MelbourneHO,Mildura,Gippsland,Barwon SouthWest)
AboriginalFamilyLawServiceWesternAustralia(PerthHO,Broome,Carnarvon,Kununnura,Geraldton,Kalgoorlie,Port Hedland)
AboriginalFamily LegalServiceSouthern Queensland (Roma)
BinaalBillaFamily ViolencePrevention LegalService(Forbes)
CentralAustralianAboriginalFamilyLegalUnitAboriginalCorporation(AliceSpringsHO,Tennant Creek)
FamilyViolenceLegalServiceAboriginalCorporation (Port AugustaHO,Ceduna,Pt Lincoln)
ManyRiversFamily ViolencePrevention LegalService(Kempsey)
MarninwarnitkuraFamilyViolencePreventionUnitWA (Fitzroy Crossing)
NgaanyatjarraPitjantjatjaraYankunytjatjaraWomen’sCouncilDomesticandFamilyViolenceService(AliceSprings,NPY Tri-stateRegion)
QueenslandIndigenous FamilyViolenceLegalService(CairnsHO,Townsville,Rockhampton,Mount Isa,Brisbane)
Southern AboriginalCorporation Family ViolencePrevention LegalService(Albany,WA)
Thiyama-liFamily ViolenceServiceInc.NSW(MoreeHO,Bourke,Walgett)
Warra-WarraFamily ViolencePrevention LegalService(Broken Hill)
NorthAustralianAboriginalFamily LegalService(Darwin HO,Katherine)

About the Family Violence Prevention Legal Services (FVPLS) Program

FVPLSsprovidefrontlinelegalassistanceservices,earlyintervention/preventionandcommunitylegaleducationactivitiestoAboriginalandTorresStraitIslandervictims/survivorsoffamilyviolence.

FVPLSswereestablishedover16 yearsago, in recognition of:

the gap in access to legal services for Aboriginal and Torres Strait Islandervictims/survivorsoffamily violenceandsexualassault;
thehighnumberoflegalconflictswithinAboriginalandTorresStraitIslanderLegalServices(ATSILS); and
highratesoffamily violence in AboriginalandTorresStrait Islandercommunities.

FVPLSshaveadoptedholistic,wrap-aroundservicedeliverymodelsthatprioritiselegalservicedeliverywhilerecognisingandaddressingthemultitudeofinterrelatedissuesthatourclientsface.TheprimaryfunctionofFVPLSsistoprovidelegalassistance,casework,counsellingandcourtsupporttoAboriginalandTorresStraitIslanderadultsandchildrenwhoarevictims/survivorsoffamily violence.

FVPLS lawyers provide legal assistance in the four core areas of:

family violencelaw;
childprotection;
family law; and
victimsofcrimeassistance.

FVPLSsalsoprovideculturallysafecommunitylegaleducationandearlyintervention/preventionactivities.Whereresourcespermit,someFVPLSunitsalsoprovideadditionalassistanceinothercivillawissuesarisingfromfamilyviolencesuchasCentrelink,Child Support, infringementsand policecomplaints.

NinetypercentofFVPLSclientsareAboriginalandTorresStraitIslanderwomenandchildren.Familyviolenceiscomplexandtheissuesourclientsfacearecomplex.Aswellasfamilyviolencedrivenhomelessness,ourclientslivewithintergenerationaltrauma,removalofchildren,discrimination,poverty,mentalhealthissues,disability,lowerlevelsofliteracyandnumeracy,aswellas a rangeof othercultural,legaland non-legalissues.

FVPLSsplay an importantrolewithin thefamily law systemandwithin familyviolenceandchildprotectionsystemsattheStateandTerritorylevel.FVPLSsprovidevital,culturallysafelegalrepresentationandassociatedsupporttoAboriginalandTorresStraitIslanderclientsthroughoutthelifeoftheirlegalmatterandfrequentlyassistclientstoidentifytheirmultiplelegalissuesandnavigatethecorrespondingmultiplejurisdictions(suchasfamilyviolencemattersinMagistratesCourts,childprotectionmattersintheChildren’sCourtandFamilyLawparentingorothermattersintheFamily Law Courts).

AboriginalandTorresStraitIslandervictims/survivorsoffamilyviolencefaceawidearrayofcomplexandcompoundingbarrierstoreportingfamilyviolenceandaccessingculturallysafesupport.ThereisbothlimitedunderstandingonthepartofmanyAboriginalvictims/survivorsoffamilyviolenceoftheirlegalrightsandtheavailablesupports,andalackofculturalcompetencyacrossmuchofthemainstreamsupportsectorwhichcreatesmistrustandfearofindirectdiscriminationforAboriginalvictims/survivors.FVPLSsarebestplacedtoaddressthesebarriers.TheabilitiesofFVPLSsto“generatetrustingrelationshipswithcommunities”[6]andtoprovideculturallysafeserviceshavebeenidentifiedas“primarysuccessfactorsforlegalservices.”[7]

Familylawmatterstoberesolvedbystateandterritorycourts

TheNationalFVPLSForumrecognisestheburdenonvictims/survivorsoffamilyviolencehavingtodealwithmultiplejurisdictionsandcourtforums.However,wehaveanumberofconcernsabouttheproposedamendmentstoextendthejurisdictionofstateandterritorycourtstoexercisefamily law powers.

Concerns regarding Court (and legal service) capacity and impacts

Family lawisa complex and specialistarea.The capacity ofMagistratestoexercise the proposedpowers,suchasempoweringastatecourttomakeafamilylawordertocomplementafamilyviolenceorchildprotectionorder,inalreadyunder-resourcedandover-burdenedcourtswithever-increasinglistsmayresultincertaincomplexitiesnotreceivingadequatetimeandconsideration.ThisisespeciallyrelevantwiththeaddedcomplexitiesofacaseinvolvingAboriginaland/orTorresStraitIslanderchildrenandfamilies,wherethereareuniqueculturalandsocialfactorsthattheCourtisobligatedtoconsider.Inruralandremotesareas,whereMagistratesCourtstraditionallysitonacircuitbasis,thehighvolumeofmattersthatMagistratesarerequiredtoaddressduringashortperiodoftimemayresultinalackofcapacitytopayproperconsideration to even basicfamily law matters.

TheFamilyLawActcontainsspecificlegislativeprovisionsaimedatprotectingtheculturalrightsofAboriginalchildren.[8]MagistrateswouldneedtobeconfidentinapplyingtheseparticularprovisionsandtherelevantcaselawtoadequatelymeettheneedsofAboriginalfamiliesandmakeordersin thebestinterestsofAboriginalchildren asmandatedby theAct.Asacritical pre-requisitetotheseproposedreforms,theNationalFVPLSForumrecommendsthatallMagistratesexercisingthesepowersreceivetailoredtraininginrelationtotheseissues,togetherwithculturalcompetencytrainingandspecifictrainingconcerningtheneeds,experiencesandbarriersfacedbyAboriginalvictims/survivorsoffamilyviolenceinaccessingthefamilylawsystem.Tothisend,it may bemostappropriateto establishspecialist Magistratestohearthesematters.

Currently in certain jurisdictionsservicedby our members, suchastheNorthern Territory,localcourtsareequippedwiththepowertohearbasicfamilylawmatters.However,theNationalFVPLSForumunderstandsthatthereisareluctancebylocalcourtstoutilisethesepowersduetolackofresourceswithinthecourts,andlackof specialised trainingonthepartofjudgestomakedecisionsinfamilylawmatters.ThereisconcernfromFVPLSmemberorganisationsthattheproposaltoinvestfurtherpowerinstatecourtstohearfamilylawmattersmaybemetwithasimilarreluctance.Nevertheless,insomejurisdictionssuchastheNorthernTerritory,theproposedamendmentswillprovidetheopportunityforamorestablepresenceforfamilylaw inregionalareaslikeAliceSprings,giventhattheFamilyCourtdoesnotcurrentlyhaveapermanentpresence in AliceSprings.

WithregardtoChildren’sCourtstakingonexpandedfamilylawpowers,itisimportanttonotethattheChildren’sCourtand theFamily Courthavedistinct purposesandlegislativeapproachestoapplyingprinciplesrelatingtothebestinterestsofthechild.WhiletheChildren’sCourtismandatedtomakeajudgementwhichaddresses“protectionfrom harm”asitsprimaryrole(andonlyincircumstanceswhereathresholdneedforprotectionhasbeenmettopermitanapplicationtotheCourt),theFamilyCourtisguidedbythe“thebestinterests”ofthechildas“the

paramountconcern”.Theissuesandfundamentalprincipleswhichunderlietheseconsiderationsaredistinct,and theNationalFVPLSForummaintainstheyshould remain distinct.

However,theFVPLSForumdoessupportcollaborativeapproachesbetweenMagistrates,Children’sandFamilyLawCourts.Forexample,ourFVPLSmemberorganisationinWesternAustraliareportsthatapracticedirectionwasissued[9]relatingtotheWesternAustralianChildren’sCourt(‘CCWA’)andtheWesternAustralianFamilyCourt(‘FCWA’)whichallowedfortheproperandefficientexchangeofdocumentationbetweentheFCWAandtheCCWA.Thishasensuredthatcareandprotectionmattersarebeingdealtwithwithinthesecourtsconcurrently.AtpresentthereisaDepartmentforChildProtectionandFamilySupport(DCPFS)workersituatedattheFCWAwhoprovidesongoingsupportwithintheCourt.Thisco-locationofserviceswithintheFCWAenablesthesharingofinformationinhighlycomplexcases.Thisexampleofjurisdictionalgoodpracticehighlightsalternativeapproachestoexpandingthejurisdictionofstateand territorycourts.

Similarly,aspartoftheimplementationoftherecommendationsoftheSpecialTaskforceonDomesticandFamilyViolence’sNotNow,NotEverReport,QueenslandiscurrentlyestablishingaSpecialistDomesticandFamily ViolenceCourt inSouthport.Thisspecialist court, indealing withapplicationsfordomesticandfamilyviolenceorders,alsoexerciseslimitedfamilylawjurisdiction tovary, suspendor revoke Family Court orders.

If,despiteourconcerns,theseproposedamendments aretogoahead, theNationalFVPLSForumsharesthepositionexpressedbyWomen’sLegalServicesAustralia(‘WLSA’),thatanexpansioninstateandterritoryfamilylawjurisdictionoughttobecontingentontheFederalGovernmentcommittingtoprovideadditionalresourcesandfundingtostateandterritorycourtstoensuretheyareinapositiontotakeonanincreasedcaseloadinthisnewandcomplexareaoflaw.Withoutasignificantincreaseintheresourcesavailabletostateandterritorycourts,theNationalFVPLSForumandWLSAareconcernedthatthe practicaloperationoftheproposedexpansioninthesecourts’familylawjurisdictionwillbemetwithareluctancebyjudicialofficers,orwillultimatelyfailtoreducethecomplexityanddelaycurrentlyassociatedwithfamilylawproceedings.

Asdiscussedfurtherbelow,thisfundingshouldbecomplementedbyadditionalresourcingforlegalassistanceservices,includingmostcriticallyFVPLSs,tomeettheincreaseddemandforfamilylawadviceandassistancethatwillflowfromthesereforms.AccesstofamilylawadviceandassistancemustbeanintrinsicpartoftheimplementationofthesereformstoensurethattheydonotoperatetothedetrimentofvulnerableclientssuchasAboriginalandTorresStraitIslandervictims/survivorsof family violence.

Concerns regarding adverse impacts on Aboriginal and Torres Strait Islander victims/survivors of family violence

TheNationalFVPLSForumisconcernedthattheproposedamendmentsmayplaceinappropriatepressureonvictim/survivorsoffamilyviolencetoagreetoFamilyLawOrderswhicharenotinherorherchildren’sbestinterests,iftheseordersarebeingsoughtaspartofafamilyviolenceorchildprotectionmatterotherwisebeforealocalcourt.FVPLSstaff hearregularlyfromourclientsofthe pressureandstresstheyexperiencewhenattendingcourt. Ourclients’attendanceatcourtistypicallyprecipitatedbycrisis,suchasafamilyviolenceincidentorremovalofachild,fromwhichtheyarestillrecovering. Thisstressisfurthercompoundedincircumstanceswhere

AboriginalandTorresStraitIslandervictims/survivorsoffamilyviolenceareunrepresentedordonothaveaccesstoculturallysafelegalassistancefromservicessuchasFVPLSs(forexample,incircumstanceswheretheymustrelyonbriefinteractionswithadutylawyerorrepresentationfromamainstreamlegalservicewhichisunabletoaddressorunderstandtheirneedsasanAboriginalperson).InasubmissiontotheProductivityCommission’s2013InquiryintoAccesstoJustice,theNationalForumnotedthatmanyAboriginalandTorresStraitIslanderclientsfindtheadversarialprocessofthecourtsystemintimidatingandperceivetheFamilyCourt,andsimilarcourts,tobegenerallyunfriendlyenvironmentswithminimalrespectandunderstandingforAboriginalandTorresStraitIslanderculture.[10]Inthiscontext,culturallysafelegalrepresentation fromservicessuchasFVPLSsisespecially critical.

TheseamendmentscreateariskthatAboriginalandTorresStraitIslanderclientsmaymake,orberequiredtomake,submissionsinrelationtofamilylawmatterswithoutreceivingculturallysafeandspecialistlegaladvicefromserviceslikeFVPLSs.Thisisparticularlyrelevantwherethereisapolice-initiatedapplicationforaFamilyViolenceOrderandthevictims/survivorhasnotbeenreferred to a culturallysafeservicesuchasan FVPLS for support andlegal advocacy.

TheNationalFVPLSForum,therefore,recommendsthatmeasuresbeadoptedtostrengthenreferralstoFVPLSsinordertoprovidevitalsupportthatisbothculturallysafeandspecialisedtoAboriginalandTorresStraitIslandervictim/survivorsoffamilyviolencepriortoandthroughouttheirfamilyviolence,childprotectionandfamilylawmatters.Thisincludesestablishingand/orstrengtheningreferralprotocolswithinMagistratesCourts,SpecialistChildren’sCourts,childprotectionagencies,police,andmainstreamlegalandsupportsystemswhoengagewithAboriginalvictims/survivorsof familyviolence.

FVPLSsmustbeadequatelyresourcedtoreceivereferrals.FVPLSsarealreadyatcapacityinmanylocationsaroundthecountryandwillrequireadditionalfundingtoabsorbtheincreaseddemandassociatedwiththesereforms.WiththecurrentfundingforFVPLSssettoendinJune2018andFVPLSsnolongerhavingthebenefitofastand-alonenationalfamilyviolencepreventionlegalservicesprogramwithinfederalgovernment,FVPLSsremaininastateofuncertainty.ItisessentialthattheFederalGovernmentcommitstoprovidinglong-termsecurefundingtoallowFVPLSstoaddressthecurrentlevelofneedandmeettheanticipatedincreaseddemandforculturallysafefamily law legalassistanceresulting from theseproposedamendments.

TheNationalFVPLSForumalsosupportsrecommendation6fromWLSA’ssubmissiontothisinquiry,asanalternativereformtoprovideeffectiveprotectiontovictims/survivorsoffamilyviolence.WLSAandtheNationalFVPLSForumrecommendthattheFederalGovernmentintroducelegislativeprotectionstopreventvictimsoffamilyviolencefrombeingdirectlycross-examined by their abusers in all family law proceedings.[11]

Cultural CompetencyFrameworkfor State and Territory Courts’Exercise of Family Law Powers

TheNationalFVPLSForumrecommendsconsiderationbegiventotheneedforaculturalcompetencyframeworktobeadoptedbyStateandTerritoryCourtsexercisingaproposedexpandedfamilylawjurisdiction,[12]especiallygiventhatAboriginalandTorresStraitIslander

familiesandtheirchildrenaresignificantlyoverrepresentedwithintheChildProtectionandfamily violencesystems.

IfthefamilylawjurisdictionofStateandTerritoryCourtsisincreased(asforeshadowedbytheproposedamendments),theFederalGovernmentwillneedtogiveconsiderationtoprovidingfundingforpositionsforIndigenousFamilyConsultantsandIndigenousFamilyLiaisonOfficers(identifiedpositions)toassisttheMagistratesCourtsintheStatesandTerritorieswiththeirincreasedexerciseoffamilylawpowerstoimproveoutcomesforAboriginalandTorresStraitIslander families.[13]

Additionally,considerationshouldbegiventothecreationofculturallysafefamilylawprocessesforAboriginalandTorresStraitIslanderclientswithinanexpandedMagistratesCourt.[14]ThisisparticularlyimportantinimprovingthedeliveryoffamilylawservicestoAboriginalandTorresStraitIslanderclientsseekingtoresolvedisputesaboutthecareofchildrenespeciallyinthecontext ofsafety concernsfor thosechildren.

Anotherissuetobeconsideredin thecontext ofa proposedexpansionof thejurisdictionofStateandTerritoryMagistratesCourts,andthesubsequentparticipationofAboriginalandTorresStraitIslanderpeople,istheroleofCommunityJusticeGroupsorElders/otherrespectedpersons.CommunityJusticeGroupsandElders/otherrespectedpersonscanprovideculturaladvicetothecourtinfamilylawcasesrelatingtoanAboriginalorTorresStraitIslanderchild.[15]ThisconsiderationisconsistentwithrecommendationsmadeinQueensland’sNotNow,NotEverReport(specificallyrecommendation92),aswellastheFamilyLawCouncil’sFamilieswithComplexNeedsandtheIntersectionoftheFamilyLawandChildProtectionSystemsFinalReport(specificallyrecommendation16).However,ifCommunityJusticeGroupsorElders/otherrespectedpersonsbecomeinvolvedundertheproposedmodel,properresourcingandtrainingisrequired toensurethatthey can effectivelyengagewiththecourt.

Assistingthecourtstoexercisefamilylawjurisdiction

TheNationalFVPLSForumwelcomestheFederalGovernment’scommitment,asoutlinedintheconsultationpaper,tofundjudicialtrainingtocomplementtheseamendments.Asnotedabove,westronglyrecommendinclusionofculturalawarenesstrainingaspartofanybroaderpackageoftrainingdeliveredtothejudiciary,alongwithspecifictraininginrelationtoAboriginalpeoples’interactionwiththefamilylawsystemandtheuniqueneedsandbarriersfacedbyAboriginalvictims/survivorsoffamilyviolence.IncorporatingtheseelementsintojudicialtrainingpackagesisessentialnotonlytoensureMagistratesunderstandandappropriatelyapplythelegislativeprovisionsandobligationstowardsAboriginalchildrenundertheFamilyLawAct,butdoingsowouldalsoassist thejusticesystemtoberesponsiveto theneedsofAboriginaland TorresStraitIslanderpeople,especiallyAboriginalandTorresStraitIslandervictims/survivorsoffamilyviolence.Thiswouldbeacriticalstepinovercomingthesignificantalienationandmistrustofthefamilylawsystem-andjusticesystemmorebroadly-feltbyAboriginalandTorresStraitIslandervictims/survivorsoffamily violenceand theircommunities.

FVPLSsareuniquelyplacedtoassistinthedesignanddeliveryofsuchtraining.TheNationalFVPLSForum,throughmemberorganisationFVPLSVictoria,hasapre-existingandpositiverelationshipwiththeAustralianJudicialCollegeandFVPLSVictoriahasbeencalledupontodeliverculturalawarenesstrainingtojudicialofficersonanumberof occasions,including in thefamily law jurisdiction.AsAboriginalCommunity Controlled Organisations,FVPLSscan supportthejudiciary’sunderstandingofthecomplexnatureoffamilyviolenceasiteffectsAboriginalandTorresStraitIslandervictims/survivorswhichwillbecriticalinthecontextoftheseproposedamendments.

Inaddition,aspartoftheimplementationoftheseamendments,werecommendtheFederalGovernmentextendresourcingforculturallysafecommunitylegaleducationtoensureAboriginalandTorresStraitIslandercommunitiesareawareoftheamendments,theirrightsinrelationtothemandthe potentialimplications.Wewould especiallyencouragetrainingtargetedatAboriginalandTorresStraitIslanderwomen,asthosemostatriskoffamilyviolence.Thisisespeciallyimportantinacontextwherefearofchildremovalandover-criminalisationaresignificantdeterrentsforAboriginalandTorresStraitIslandervictims/survivorsoffamilyviolencetoreport familyviolenceandaccessthefamily law and broaderlegalsystem.

Inaddition,trainingwouldberequiredforotheragenciesimplicatedinthecross-jurisdictionalprocesscontainedinthesereforms,suchaschildprotectionworkersandpolice.TheNationalFVPLSForumhasadvocated ina number offorumsfor strengthenedculturalsensitivity trainingandaccountabilitysystemsforbothchildprotectionservicesandpolicetoimproveinteractionsandoutcomesforAboriginalvictims/survivorsoffamilyviolenceand theirchildren.[16]

Strengtheningthepowersofthecourtstoprotectvictimsoffamilyviolence

TheNationalFVPLSForumwelcomesamendmentstoprovidegreaterprotectionforAboriginalandTorresStraitIslandervictims/survivorsagainstperpetratorsoffamilyviolence.However,weareconcernedthatsomeoftheproposedamendmentsneedtobedraftednarrowlyandwithproperconsiderationofthespecificneedsofAboriginalandTorresStraitIslandervictims/survivorsoffamily violence,predominantlywomen and theirchildren.

Criminalisingbreachesofpersonalprotectioninjunctions

Theproposedamendmentstosections68Cand114AAoftheFamilyLawAct1975aresupportedbytheNationalFVPLSForumintheirintentiontoprovidefurtherprotectionforvictims/survivorsoffamilyviolenceandtheirchildren,andtodemonstratethatfamilyviolenceisamatterofpublicconcern.Wedo,however,notethatthevalueofthisnewcriminaloffencewillbereliant onthequalityofitsenforcement–in otherwords,thecapacityandwillingnessofcourtsandpolicetoactonbreaches.Inaddition,thedraftingandimplementationoftheseamendmentsmustcarefullyconsiderhowthisnewoffencewillinteractwithexistingfamilyviolenceordersandprocessesunderstateandterritorylegislation,aswellastheproposednational DVO scheme.

FVPLSclientsaccessingthefamilylawsystemtypicallydosoafterexitingaviolentrelationship,orindeedagainstabackdropofmanyyearsofviolenceandabuse.Ourclientsmaythereforealreadyhaveastateorterritoryfamilyviolenceorderinplacethatrelatestotheotherpartyintheirfamilylawmatter,meaningafamilylawpersonalprotectioninjunctionwouldnotberequired.However,anumberofourclientswouldbenefitfromaccessingafamilylawpersonalprotectioninjunctionincircumstanceswheretheydidnotpreviouslyhaveafamilyviolenceorderbecause,forexample,theyweretoofrightenedtoseekoneortheyhadonethatexpiredpriortofamilylawproceedingsbeingcommenced.Familylawproceedingscanbeatriggerforthere-emergenceor escalationoffamilyviolence.Forexample,FVPLSclients(typicallymothersinfamilylawmatters)haveexperiencedthreats,abuseand/orviolentassaultsduringchangeoverspursuanttoparentingorders,aswellasinstancesoffamilyviolenceintendedtointimidatethemintodropping or settlingtheir family law matters.

Police enforcement

Withrespecttopoliceenforcement,FVPLSstaffheardailyreportsofourclients’experienceswithpolice.Fartoooftenourclients’storiesillustrateserioussystemicissuesaroundpoorpoliceresponsestobreachesoffamilyviolenceorderswhichexposeourclientstoadditionaltraumaandrisk.Thisincludesresponsesfrompolicethatdisbelieve,minimiseortrivialiseourclients’experiencesof violence,discriminateagainst Aboriginaland TorresStrait Islandervictimsorfailtoaccordwiththerequisitepoliceprotocols(forexample,theKooriFamilyViolencePoliceProtocolsinVictoria).SuchresponsesbypoliceultimatelydeterAboriginalandTorresStraitIslandervictims/survivorsfromreportingviolenceandseekingassistancetoensuretheir safetyand that of theirchildren.

Case Study[17]

Therefore,theNationalFVPLSForummaintainsthatinorderfortheproposedamendmentstoachievetheirdesiredpurpose,theirimplementationmustbeaccompaniedbysufficienttrainingofstate,territoryandfederalpolicetorespondappropriatelytoreportsofpersonalprotectioninjunctionbreaches.SuchtrainingmustincludeculturalcompetencytrainingandspecifictrainingconcerningtheuniqueneedsandbarriersofAboriginalvictims/survivorsoffamilyviolence.

Inaddition,theimplementationofnational,transparentandconsistentpoliceresponseprotocolsshouldbeconsidered.Suchprotocolsshouldincludeguidanceforpolicearoundappropriatelyidentifyingrisk(whichcouldforexampledrawontheCommonRiskAssessmentFrameworkusedbyVictoriapolice)andculturalcompetencyelementssuchasacodeofconductforrespondingtoandrespectingtherightsofAboriginalandTorresStraitIslandervictims/survivors.

Increased demand for and importance of culturally safe legal assistance

Givenissueswithpoliceenforcementoffamilyviolenceordersoutlinedabove,FVPLSsplayacriticalroleinholdingpolicetoaccountthroughsupportingandadvocatingforAboriginalandTorresStraitIslandervictims/survivorsintheirinteractionswithpolice.Weanticipatethatthecreationofthenewfamilylawpersonalprotectioninjunctionswillcreateincreaseddemandforour servicesand forcommunity legaleducation.

ItiscriticalthatAboriginalandTorresStrait Islandervictims/survivorsimpactedby abreachofapersonalprotectioninjunctionreceiveappropriatereferralsfrompoliceandotherstoculturallysafeservicessuchasFVPLSs.ThisisvitaltoensurethatAboriginalvictims/survivorsoffamilyviolenceunderstandtheirrightsinrelationtoanylegalactionthatfollowsthebreach.FVPLSsmustberesourcedtohavethecapacitytoreceivethesereferralsandmeetdemandforculturallysafelegalassistanceto Aboriginalvictims/survivors.

Alignment withState and Territory family violence orders and nationalDVO scheme

Toensurethattheproposedfamilylawpersonalprotectioninjunctionscanachievetheirstatedpurposeitwillbeimportanttoequalisetheirenforceabilitywithstateandterritoryfamilyviolenceorders.Thisisnecessarytoavoidconfusionandtheneedforvictims/survivorstocommenceproceedingsinmultiplecourtstostaysafe.Considerationshouldalsobegiventotheexistenceofapreviousstateorterritoryfamilyviolenceorder,andtheabilityforinformationandevidencefromthoseproceedingstobesharedwiththefamilylawcourtsinanapplicationforafamilylawpersonalprotectioninjunction.Allowingsuchinformationtobesharedwiththefamilycourtwouldhelppreventcriticalevidenceofriskbeingmissedbythefamilycourt–puttingvictims/survivorsandtheirchildrenatrisk.Itwouldalsoreducethere-traumatisationofvictims/survivorsforced torepeatedly testify totraumaticandsensitiveevents.

AfurtherconsiderationrelatestocurrentdifficultiesthatexistaroundtheenforcementandregistrationofFamilyViolenceOrderswhen aprotectedpersonrelocatestoanother state.Iftheproposaltocriminalisebreachesofpersonalprotectioninjunctionsisaccepted,thesebarriersmustalsobeaddressed.Tothisend,itwillbeimportanttolookathowtheproposedamendmentsconcerningfamilylawpersonalprotectioninjunctions willalignwithongoingworkconcerninganational DomesticViolenceOrder (‘DVO’) scheme.

Increasing the power of the Court to dismiss unmeritorious claims

TheNationalFVPLSForumsupportslegislativeamendmentsthatseektopreventperpetratorsoffamilyviolencefromabusingthefamilylawsystem.Allowingforsummarydismissalofunmeritoriousclaimswillprovidefurtherprotectionforourclientsagainstbaselessclaimsmadeby perpetratorswhichare intendedtofurther traumatiseand intimidateour clients.

Theabovecasestudyhighlightsthecurrentdifficultyfacedbyjudgeswhenanunmeritoriousclaimisbroughtagainstavictim/survivorsoffamilyviolence.Itishopedthattheproposedamendmentswillallowforclaims,liketheonedescribedabove,tobedismissedpriortothemotherand children having toendure theprocessof a hearing.

However,thedraftingofthisprovisionmustbedonewithcautiontoensurethatitisframednarrowlysoasnottoallowtheunduedismissalofvalidclaimsbyvictims/survivorsoffamilyviolencenorcreateanotheravenueforperpetratorsofviolencetosilenceorintimidatetheirvictims.TheNationalFVPLSForumisconcernedabouttheincreaseddiscretiontodismissunmeritoriousclaimsbecominganadditionalbarrierforparticularlyvulnerableclients,suchasAboriginalvictims/survivorsoffamilyviolence,whoareunabletopresenttheircasetothesatisfactionofthecourt–forexample,becauseoffamilyviolence-relatedtrauma,culturalorlanguagebarriers,orwheretheyhavenotreceivedessentialsupportandlegalrepresentationfromaculturallysafeservicepriortoattendingcourt.WhereanAboriginalvictims/survivorisunabletopresenttheircasetoasufficientstandard,theirmattermaybemis-identifiedasunmeritorious.

FVPLSsfrequentlyhearfromourclientsandthecommunitiesweserveofre-traumatisationthroughthecourtprocess.Thisoccursbecauseofarangeofcomplexfactorsincludinghistoricandcontemporaryassociationbetweenfamilycourtsandchildremovalandourclients’fearthatchildrenwillberemovedfromthemiftheyengageinthecourtsystem.Thetraumatisingeffectoffamilycourtinvolvementisalsoexacerbatedbythefactthatself-representedperpetratorsarepermittedtocross-examinetheirvictims,andmanycourtsfacilitiesallowperpetratorstohavecontactwith(andtherebytheabilitytothreatenandintimidate)theirvictimspriortohearings.[18]

In thiscontext,we support recommendation 6madeby WLSA in theirsubmission tothisinquiry“that the federalGovernment introducelegislativeprotectionsto stopa victim of family violencebeingdirectlycross-examinedbytheirabuserinallfamilylawproceedings.”Weotherwisereiterateourearliercommentsaboutthecrucialneedforappropriateresourcingandreferralofculturallysafeservicesand supportsfor Aboriginalvictims/survivorswithfamily lawmatters.

[19]

Strengtheningordersissuedbystateandterritorycourts

TheNational FVPLSForumsupportstheproposedamendment toremovethe21-day timelimitona state or territory court’svariation of a family law order in interimdomesticviolence orderproceedings.Thisamendment better reflectsthereality of waitingtimesforahearingin theFamily Courtand willbettersupport thesafety andcertainty of Aboriginaland TorresStraitIslander victims/survivorsof family violence.

Enabling the Court to explain orders in a manner that supports the best interests of the child

TheNational FVPLSForumwelcomeseffortstoimprovetheFamily Courtsand Federal CircuitCourts’ capacity tocommunicateeffectively withchildren inamannerthat doesnot re-traumatisethem,and supportsthebest interestsofthechild.

In thecaseofAboriginaland TorresStrait Islanderchildren,weemphasisethat itisalsocriticalthattheCourthasthecapacity tocommunicateina culturallycompetent mannerand takesaculturallyinformedviewof thebest interestsof thechild.Thisisof importance for allAboriginalandTorresStrait Islanderchildrenwhether they befrommetropolitan,regional orrural communitiesgiven theculturalbarriersand systemicdiscrimination experiencedbyAboriginalandTorresStrait Islanderpeople Australia-wide. However,thisisespeciallywarranted inthecase of AboriginalandTorresStrait Islanderchildrenfromremoteareaswithlimited accesstoservices,thosefor whomEnglishisa second(or indeed third or fourth)languageand thosewithlimitedliteracy.

Amendmentssuchasthoseproposedwhichhavethecapacity toimpact Aboriginaland TorresStrait Islanderchildren’sparticipation in family law mattersshould beconsistent withthe United Nations Conventionon the Rights of theChild,including provisionsconcerning theculturalrightsofAboriginaland TorresStrait Islanderchildren (namelys.30).The ongoing legacy ofcolonisation,forcedassimilation and childremovalmust provide a backdroptoany reformswhichimpact theparticipation,consideration andwellbeing of Aboriginaland TorresStraitIslander children and their families.Withregard tothismattermorebroadly,theNational FVPLSForumsupportsthecommentsmadeby WLSAin their submission concerning theseamendments.

AboriginalandTorresStrait Islanderchildren’scapacity tounderstand,participate in andbenefit fromfamily law mattersmust alsobesupportedthroughappropriateresourcing andreferraltoculturallysafeservicesand supports(including, for example,throughFVPLSs).

Repeal obligation to perform marital services

TheNational FVPLSForumwelcomestherepeal ofsubsection 114(2) of theFamily LawActwhichpermitsthecourttomakean order relievinga partyto a marriagefroman obligation toperformmarital servicesor render conjugal rights.The repeal ofthisarchaicprovision willbetter reflect current socialvaluesand send animportantmessage ofsupport forgenderequality andsafeand respectfulrelationshipsfreefromviolence.

[1]SenateReportonLegalAidandAccesstoJustice,2004.AboriginalandTorresStraitIslanderCommission(ATSIC),SubmissiontotheSenateLegalandConstitutionalReferencesCommitteeInquiryintoLegalAidandAccesstoJustice,ATSICCanberra,13November2003,page4.

[2]TheAustralianProductivityCommission,OvercomingIndigenousDisadvantage-KeyIndicators2014,2014,page4.93,table4A.11.22availableat 2014/key-indicators-2014-report.pdf.

[3]AustralianInstituteofHealthandWelfare,FamilyViolenceamongAboriginalandTorresStraitIslanderpeople,2006,page66availableat

[4]Peel,SandCroucher,R.F.(2011)Mind(ing)theGap:Lawreformrecommendationsrespondingtochildprotectioninafederalsystem,FamilyMatters,No.89,page23.

[5]Availableat: Submission - National Forum Family Law Council

[6]TheAllenConsultingGroup(2012),ReviewofFamilyViolencePreventionLegalServices:FinalReport(ReporttotheAustralianGovernmentAttorney-General’sDepartment).

[7]TheAllenConsultingGroup(2012),ReviewofFamilyViolencePreventionLegalServices:FinalReport (ReporttotheAustralianGovernmentAttorney-General’sDepartment).

[8]SeeFamilyLawAct1975(Cth),ss61F,60B(2)(e),60B(3),60CC(3)(h),60CC(6).

[9]PracticeDirection,1of2015oftheFamilyCourtofWesternAustralia.

[10]NationalFVPLSForumsubmissiontotheProductivityCommissionInquiryintoAccesstoJustice,2013,page11.

[11]Women’sLegal ServicesAustralia,‘Submission inresponsetotheexposuredraft oftheFamily LawAmendment(FamilyViolenceandOtherMeasures)Bill2017(Cth)’,January2017,page11.

[12]SeeFamilyLawCouncil,ImprovingtheFamilyLawSystemforAboriginalandTorresStraitIslanderClients,February2012,recommendation2.

[13]Ibid,recommendation6.

[14]FamilyLawCouncil,FamilieswithComplexNeedsandtheIntersectionoftheFamilyLawandChildProtectionSystems:FinalReport,June2016.

[15]Ibid,recommendation16.

[16]SeeNFVPLS Submissions and Media page

[17]Case studies throughout thissubmissionareanonymised to protect our clients’ confidentialityandsafety,andaredrawnfromourmemberorganisationslocatedacrossthecountry.

[18]FVPLSVictoriasubmissiontotheVictorianRoyalCommissionintoFamilyViolence,June2015,page57-58.

[19]Asrecommendedinthe FamilyLawCouncil’s2016reportonFamilieswithComplexNeedsandtheIntersectionoftheFamilyLawandChildProtectionSystems.For furtherdiscussion,seeWLSA’ssubmission tothisinquiry.