Commonwealth of Australia Explanatory Memoranda Commonwealth of Australia Explanatory Memoranda[Index] [Search] [Download] [Bill] [Help]
2013-2014-2015
THE PARLIAMENT OF THE COMMONWEALTH OF AUSTRALIA
HOUSE OF REPRESENTATIVES
TREASURY LEGISLATION AMENDMENT (SMALL BUSINESS AND UNFAIR
CONTRACT TERMS) BILL 2015
EXPLANATORY MEMORANDUM
(Circulated by the authority of the Minister for Small Business,
the Hon Bruce Billson MP)
Table of contents
Glossary .................................................................................................. 1
General outline and financial impact ....................................................... 3
Chapter 1 Amendments to the Australian Securities and
Investments Commission Act 2001 ............................... 7
Chapter 2 Amendments to the Competition and Consumer
Act 2010 ...................................................................... 15
Chapter 3 Regulation impact statement ....................................... 23
Chapter 4 Statement of Compatibility with Human Rights .......... 107
Glossary
The following abbreviations and acronyms are used throughout this
explanatory memorandum.
Abbreviation Definition
ACCC Australian Competition and Consumer
Commission
ACL Australian Consumer Law
ASIC Australian Securities and Investments
Commission
ASIC Act Australian Securities and Investments
Commission Act 2001
CAF Legislative and Governance Forum on
Consumer Affairs
CC Act Competition and Consumer Act 2010
IC Act Insurance Contracts Act 1984
IGA Intergovernmental Agreement for the
Australian Consumer Law 2009
RIS regulation impact statement
SBDC Small Business Development Corporation of
Western Australia
SME Small to Medium Enterprise
TPA Bill 2010 explanatory explanatory memorandum to the Trade
memorandum Practices Amendment (Australian Consumer
Law) Bill (No. 1) 2010
VSBC Victorian Small Business Commissioner
1
General outline and financial impact
Extending unfair contract term protections to small
businesses
This Bill amends the Australian Securities and Investments Commission
Act 2001 (ASIC Act) and the Australian Consumer Law (ACL), which is
set out in the Competition and Consumer Act 2010, to extend the unfair
contract term protections currently available to consumers to cover
businesses with less than 20 employees agreeing to standard form
contracts valued at less than a prescribed threshold.
The ASIC Act and the ACL currently contain mirror consumer unfair
contract term protections. The ASIC Act's requirements apply to financial
services and products and the ACL applies to the supply of goods or
services other than financial services or products and the sale or grant of
an interest in land.
This Bill:
• extends the consumer unfair contract term protections in the
ASIC Act and the ACL to small business contracts that meet
the prescribed criteria; and
• makes provision for exempting small business contracts that
are subject to prescribed laws that are deemed equivalent to
the unfair contract term protections in the ASIC Act or the
ACL, and which are enforceable.
The measures outlined in this Bill have been developed in consultation
with a range of stakeholders, including the general public, businesses,
industry groups and Commonwealth, state and territory consumer
agencies, regulators and Small Business Commissioners. An extensive
public consultation process was held from 23 May to 1 August 2014 on
the design of the protections and a public consultation on the Exposure
Draft legislation was held in May 2015.
Measures relating to the ASIC Act were agreed to by the Assistant
Treasurer, and states and territories were notified of the amendments to
the ASIC Act as required under the Corporations Agreement 2002.
Measures relating to the ACL were agreed to by a majority of states and
territories as required under the Intergovernmental Agreement for the
Australian Consumer Law.
3
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
Date of effect: The Bill will commence six months after the date it
receives Royal Assent.
Proposal announced: This proposal was announced in the Coalition's
Policy for Small Business released in August 2013, as an election
commitment.
Financial impact: The Australian Competition and Consumer
Commission was provided $1.4 million in the 2014-15 Budget to support
the implementation of this Bill. The enforcement of the unfair contract
terms law may require regulatory resources, including use of the court
system, however it is expected that the majority of complaints will be
resolved administratively and not through litigation.
Human rights implications: This Bill does not raise any human rights
issues. See Statement of Compatibility with Human Rights -- Chapter 4,
paragraphs 4.1 to 4.4.
Compliance cost impact: Medium. Persons who offer contracts to small
businesses may incur a once-off transitional cost (including seeking legal
expertise) to implement any system changes and ensure contract terms
comply with the unfair contract terms law. This cost is estimated to be
$50 million in the first year, with no ongoing costs. To help reduce
compliance costs, the Australian Competition and Consumer Commission
will undertake an educative and compliance-based approach similar to
when the consumer unfair contract terms law was introduced.
Summary of regulation impact statement
Regulation impact on business
Impact: This measure will affect persons that enter into standard form
contracts valued less than a prescribed amount with a business with less
than 20 employees.
Main points:
• The extension of the consumer unfair contract term
protections to small business contracts will allow unfair
contract terms to be declared void and for the contract to
continue to bind the parties if it can operate without the
unfair term.
• This will reduce the incentive to include and enforce unfair
terms in small business contracts, providing a more efficient
4
General outline and financial impact
allocation of risk in these contracts and supporting small
business' confidence in agreeing to contracts.
• Businesses that offer low-value standard form contracts to
small businesses may need to review and amend their
contracts to ensure they are compliant with the new
protections.
5
Chapter 1
Amendments to the Australian Securities
and Investments Commission Act 2001
Outline of chapter
1.1 Schedule 1 to this Bill contains amendments to extend the
consumer unfair contract term protection in the Australian Securities and
Investment Commission Act 2001 (ASIC Act) to businesses with less than
20 employees agreeing to standard form contracts valued at less than a
prescribed threshold.
Context of amendments
1.2 Small businesses, like consumers, are vulnerable to unfair terms
in standard form contracts as they are often offered contracts on a 'take it
or leave it' basis and lack the resources to understand and negotiate
contract terms. There is potential for small business detriment where these
unfair contract terms are enforced.
1.3 Consultations indicated that unfair contract terms often allocate
contract risks to the party that is less able to manage them (usually small
businesses). Small businesses are less likely to have robust risk
management policies or be in a position to absorb the costs associated
with a risk if it eventuates.
1.4 Small businesses often lack in-house legal expertise and the cost
of obtaining legal advice, particularly for low-value contracts, can be
disproportionate to the potential benefits of entering into such contracts.
Where small businesses decide to not enter into contracts due to their lack
of confidence in understanding and negotiating terms or the cost of
obtaining legal advice, they may miss out on market opportunities.
1.5 Existing laws largely address 'unfair' behaviour in business
dealings, rather than unfair contract terms. Moreover, the protections
available under the ASIC Act for unfair contract terms are currently only
afforded to consumers and not businesses.
1.6 The extension of the unfair contract term protection to cover
small business contracts will address this vulnerability by allowing unfair
contract terms to be declared void, providing a remedy for small
7
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
businesses. This will reduce the incentive to include and enforce unfair
terms in small business contracts, providing for a more efficient allocation
of risk in these contracts and supporting small business' confidence in
agreeing to contracts.
1.7 Small businesses differ from consumers in that they also engage
in high-value commercial transactions that are fundamental to their
business and where it may be reasonable to expect that they undertake
appropriate due diligence (such as seeking legal advice). Limiting the
extension of the unfair contract term protection to low-value, standard
form small business contracts will support time-poor small businesses
entering into contracts for day-to-day transactions, while maintaining the
onus on small businesses to undertake due diligence when entering into
high-value contracts.
Summary of new law
1.8 This Bill amends the ASIC Act to:
• extend the consumer unfair contract term protection in the
ASIC Act to cover businesses with less than 20 employees
agreeing to standard form contracts valued at less than a
prescribed threshold ('small business contract'); and
• allow for the exemption of small business contracts that are
subject to prescribed laws deemed equivalent to the unfair
contract term protection in the ASIC Act, and which are
enforceable.
Comparison of key features of new law and current law
New law Current law
The unfair contract term protection in The unfair contract term protection in
Subdivision BA of Division 2 of Subdivision BA of Division 2 of
Part 2 of the ASIC Act protects Part 2 of the ASIC Act protect
consumers and those businesses with consumers only.
less than 20 employees who agree to
standard form contracts valued less
than a prescribed threshold.
8
Amendments to the Australian Securities and Investments Commission Act 2001
New law Current law
The Commonwealth Minister has the No equivalent.
power to specify another law deemed
equivalent and enforceable to the
unfair contract term protections.
Contracts subject to that law will be
exempt from the unfair contract term
protection contained in
Subdivision BA of Division 2 of
Part 2 of the ASIC Act.
Detailed explanation of new law
1.9 Part 2 of the ASIC Act contains provisions that protect
consumers from unfair contract terms. This Chapter extends these
provisions to also cover small business contracts.
1.10 Specifically, section 12BF of the ASIC Act provides that an
unfair contract term in a standard form, consumer contract will be void.
The Bill amends section 12BF to provide that an unfair contract term in a
standard form, small business contract will also be void. [Schedule 1, item 7,
subsection 12BF(1) of Division 2 of Part 2]
1.11 The extension of section 12BF to small business contracts does
not impact the availability of the existing protection for consumers,
including where there is any overlap (for instance, if the parties to a
contract include a consumer and a small business).
Existing concepts of the consumer unfair contract term protection to be
applied to the small business protection
1.12 The small business unfair contract term protection will utilise
existing concepts of 'unfair' and 'standard form contract' in
sections 12BG and 12BK of the ASIC Act.
1.13 In determining whether a contract term is unfair, a court may
take into account the extent to which the term is transparent, and the
contract as a whole.
1.14 The meaning of the terms 'unfair', 'detriment' and 'transparent'
are explained to some extent in the legislation, with further guidance
available from paragraphs 2.30 to 2.48 of the explanatory memorandum to
the Trade Practices Amendment (Australian Consumer Law) Bill
(No. 1) 2010 (TPA Bill 2010 explanatory memorandum). Paragraphs 2.49
through to 2.62 of the TPA Bill 2010 explanatory memorandum also
provide further guidance on the examples contained in section 12BH of
9
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
the ASIC Act of unfair terms, which depending on the context and
contract as a whole, could be considered as unfair.
1.15 A contract is presumed to be standard form unless otherwise
proven. This concept of 'standard form contract' is defined, together with
a list of matters that a court may find relevant in considering whether a
contract is a standard form contract, in section 12BK of the ASIC Act.
1.16 Terms that define the main subject matter and upfront price
payable under a contract, and terms required or expressly permitted by
another law, cannot be declared unfair pursuant to subsection 12BI(1) of
the ASIC Act. More information on the exemption of these types of terms
can be found in paragraphs 2.63 to 2.77 of the TPA Bill 2010 explanatory
memorandum.
Meaning of small business contract
1.17 A contract is a small business contract if, at the time it is entered
into, at least one party to the contract is a business that employs fewer
than 20 persons, and the upfront price under the contract does not exceed
either $100,000, or $250,000 if its duration is more than 12 months.
[Schedule 1, item 8, subsection 12BF(4) of Division 2 of Part 2]
1.18 The threshold places the onus on small businesses to undertake
due diligence for high-value transactions. A two-tiered transaction value
threshold is used to account for multi-year contracts. The consultation
process undertaken in 2014 indicated the transaction value threshold
would encompass most small business transactions.
1.19 The upfront price is defined in subsection 12BI(2) of the ASIC
Act as the consideration that is provided, or is to be provided, under a
contract; disclosed at or before the time the contract is entered into.
1.20 Further clarification of this is provided in the TPA Bill 2010
explanatory memorandum, at paragraph 2.68:
'Consideration includes any amount or thing provided as
consideration for the supply of a good, service, financial service,
financial product or a grant of land. It would also include any
interest payable under a consumer contract.'
1.21 Paragraphs 2.72 and 2.73 of the TPA Bill 2010 explanatory
memorandum also provided that:
'The definition also requires that the upfront price must be
disclosed at or before the time the contract was entered into by the
parties. In the case of most transactions this is reasonably
10
Amendments to the Australian Securities and Investments Commission Act 2001
straightforward, as a key pre-condition of the transaction occurring
is an understanding of the price to be paid.
A key consideration for a Court in considering whether a future
payment, or a series of future payments, forms the upfront price
may be the transparency of the disclosure of such a payment, or the
basis on which such payments may be determined, at or before the
time the contract is made.'
1.22 As with consumer contracts, there could be instances where a
small business contract sets out the basis on which some payments are to
be determined after the contract has been entered into. Whether payments
that result from such variations are part of the upfront price may depend
on the transparency of the disclosure of such payments or the basis on
which such payments will be determined.
1.23 The upfront price also applies to the totality of the consideration
that is paid for a supply, sale or grant under a contract. For example,
where a contract provides for the supply of multiple goods or services, the
upfront price will be the consideration for the total supply under the
contract. Although the upfront price is defined in subsection 12BI(2) as
the 'consideration' that is paid for a supply, sale or grant, subsection 23(b)
of the Acts Interpretation Act 1901 provides that in any law, words in the
singular number include the plural, and vice versa.
1.24 The upfront price also excludes 'other consideration' that is
contingent on the occurrence or non-occurrence of a particular event. This
is intended to exclude payments which do not relate to the supply under
the contract, for example, payments associated with non-price terms such
as termination fees, or late payment fees.
1.25 The upfront price concept applies to all contracts in the same
way, except for credit contracts. For the purpose of working out whether a
credit contract falls under the transaction value threshold, the upfront
price does not include any interest payable under the contract. [Schedule 1,
item 8, subsection 12BF(6) of Division 2 of Part 2]
1.26 This approach for credit contracts will ensure that small business
contracts of the same value are treated equally and that movements in
interest rates do not affect the scope of the protection. It will also allow
businesses to calculate a contract's value more easily when determining
whether they can rely on the protection.
1.27 A threshold of less than 20 employees has been chosen as it is a
commonly used head count measure and has been found by the Australian
Bureau of Statistics to provide a good proxy for a small business.
11
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
1.28 In calculating the number of persons a business employs, a head
count approach (regardless of an employee's hours or workload) is used.
Casual employees are to be counted only if they are employed on a
regular or systematic basis, to account for seasonal variations. This is the
approach used in the Fair Work Act 2009. [Schedule 1, item 8, subsection
12BF(5) of Division 2 of Part 2]
Contracts exempted from the small business unfair contract term
protection
Exempting contracts subject to industry-specific legislation and
regulation that are deemed enforceable and equivalent
1.29 A contract will not be covered by the ASIC Act's unfair contract
term protection where it is subject to an industry-specific law (legislation
or regulation of the Commonwealth, a state or a territory) that has been
deemed enforceable and equivalent and thereby exempted from the
protection. Industry self-regulation cannot be exempted as these are not
enforceable. [Schedule 1, item 14, subsection 12BL(2) and paragraph 12BL(3)(a) of
Division 2 of Part 2]
1.30 This regulation-making power allows the Government to limit
the operation of the ASIC Act to ensure that the unfair contract term
protection does not duplicate protections contained in another law.
1.31 Before a law is prescribed as equivalent and enforceable, the
Commonwealth Minister must consider the public interest, the overall
impact of providing the exemption, and the impact on small businesses of
prescribing the law. [Schedule 1, item 14, paragraph 12BL(3)(b) of Division 2 of
Part 2]
1.32 The Minister must also comply with any applicable
requirements stipulated by the Corporations Agreement 2002.
1.33 This is intended to provide a robust framework for the exercise
of the regulation-making power.
Exemptions already specified in the ASIC Act
1.34 Section 12BL of the ASIC Act excludes constitutions of a
company, managed investment scheme or other kind of body from
coverage of the unfair contracts law. Further information on this can be
found in paragraphs 2.98 and 2.99 of the explanatory memorandum to the
TPA Bill 2010 explanatory memorandum.
12
Amendments to the Australian Securities and Investments Commission Act 2001
Effect of the Insurance Contracts Act 1984 on contracts
1.35 Section 15 of the Insurance Contracts Act 1984 (IC Act)
excludes relief in respect of such contracts under any other law of the
Commonwealth, a state or territory, including through a judicial review of
a contract on the ground that it is harsh, oppressive, unconscionable,
unjust, unfair or inequitable.
1.36 In accordance with section 15 of the IC Act, the small business
unfair contract term protection will not apply to insurance contracts to the
extent that they are covered by the IC Act.
1.37 The current application of section 15 to insurance contracts that
are covered by the IC Act is appropriate given the current level of
protections provided to parties to an insurance contract. In particular, the
current operation of the 'utmost good faith' provisions (sections 13 and 14
of the IC Act) require parties to an insurance contract to act with the
'utmost good faith' otherwise, any clause or term that were to be
considered unfair would be void and could not be relied upon.
Consequential amendments
1.38 In extending the consumer unfair contract term protection to
small business contracts, references to consumer contracts have been
modified to also refer to small business contracts. This includes:
• In the interpretation section, section 12BA, the definition of a
number of terms used in the ASIC Act's unfair contract terms
law: non-party consumer, rely on, small business contract,
transparent and unfair [Schedule 1, items 1 to 5, subsection 12BA(1)
of Division 2 of Part 2].
• To insert into the interpretation section, section 12BA, a
referral to section 12BK for the meaning of standard form
contract [Schedule 1, item 3, subsection 12BA(1) of Division 2 of Part
2].
• The headings of the unfair contract term provisions of the
ASIC Act [Schedule 1, items 6 and 11, sections 12BF and 12BI of
Division 2 of Part 2].
• The reference to contracts in Subdivision BA of Part 2 of the
ASIC Act [Schedule 1, items 9, 12 and 13, subsections 12BG(1) to (2)
and (4), 12BH(1) and 12BI(1) to (3) of Division 2 of Part 2].
13
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
• To insert a requirement for the detriment to small business of
prescribing a term under paragraph 12BH(1)(n) to be
considered in the same way as the detriment to consumers
from prescribing such terms [Schedule 1, item 10,
paragraph 12BH(2)(aa) of Division 2 of Part 2].
• Consequential amendments to Subdivision G of Division 2 of
Part 2 of the ASIC Act, which outline the enforcement and
remedy provisions for unfair contract terms [Schedule 1, items
15 to 17, subsections 12GD(9), 12GM(10), 12GN(9), 12GND(2) to (5)
and paragraph 12GNB(1)(a)(ii) of Division 2 of Part 2].
Application and transitional provisions
1.39 These amendments apply to varied terms, and contracts entered
into or renewed on or after the day the legislation comes into effect. This
will occur the day after the end of the period of six months beginning on
the day this legislation receives Royal Assent. The amendments do not
apply to a contract or term of a contract if it would result in the acquisition
of property otherwise than on just terms pursuant to paragraph 51(xxxi) of
the Commonwealth Constitution. [Schedule 1, item 18]
14
Chapter 2
Amendments to the Competition and
Consumer Act 2010
Outline of chapter
2.1 Schedule 1 to this Bill contains amendments to extend the
consumer unfair contract term protection in the Australian Consumer Law
(ACL), which is set out in the Competition and Consumer Act 2010
(CC Act), to businesses with less than 20 employees agreeing to standard
form contracts valued at less than a prescribed threshold.
Context of amendments
2.2 Small businesses, like consumers, are vulnerable to unfair terms
in standard form contracts, as they are often offered contracts on a 'take it
or leave it' basis and lack the resources to understand and negotiate
contract terms. There is potential for small business detriment where these
unfair contract terms are enforced.
2.3 Consultations indicated that unfair contract terms often allocate
contract risks to the party that is less able to manage them (usually small
businesses). Small businesses are less likely to have robust risk
management policies or be in a position to absorb the costs associated
with a risk if it eventuates.
2.4 Small businesses often lack in-house legal expertise and the
cost of obtaining legal advice, particularly for low-value contracts, can be
disproportionate to the potential benefits of entering into such contracts.
Where small businesses decide to not enter into contracts due to their lack
of confidence in understanding and negotiating terms or the cost of
obtaining legal advice, they may miss out on market opportunities.
2.5 Existing laws largely address 'unfair' behaviour in business
dealings, rather than unfair contract terms. Moreover, the protections
available under the ACL for unfair contract terms are currently only
afforded to consumers and not businesses.
2.6 The extension of the unfair contract terms protection to cover
small business contracts will address this vulnerability by allowing unfair
contract terms to be declared void, providing a remedy for small
15
Amendments to the Competition and Consumer Act 2010
businesses. This will reduce the incentive to include and enforce unfair
terms in small business contracts, providing for a more efficient allocation
of risk in these contracts and supporting small business' confidence in
agreeing to contracts.
2.7 Small businesses differ from consumers in that they also engage
in high-value commercial transactions that are fundamental to their
business and where it may be reasonable to expect that they undertake
appropriate due diligence (such as seeking legal advice). Limiting the
extension of the unfair contract term protection to low-value, standard
form small business contracts will support time-poor small businesses
entering into contracts for day-to-day transactions, while maintaining the
onus on small businesses to undertake due diligence when entering into
high-value contracts.
2.8 The Legislative and Governance Forum on Consumer Affairs
agreed in November 2013 to consider an extension to small businesses of
the consumer unfair contract term protection in the ACL, and on 13 April
2015 agreed to the amendments in accordance with the Intergovernmental
Agreement for the Australian Consumer Law.
Summary of new law
2.9 This Bill amends the ACL to:
• extend the consumer unfair contract term protection in the
ACL to cover small businesses with less than 20 employees
agreeing to standard form contracts valued at less than a
prescribed threshold; and
• allow for the exemption of small business contracts that are
subject to prescribed laws deemed equivalent to the unfair
contract term protection in the ACL, and which are
enforceable.
16
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
Comparison of key features of new law and current law
New law Current law
The unfair contract term protection in The unfair contract term protection in
Part 2-3 of the ACL protects Part 2-3 of the ACL protects
consumers and those businesses with consumers only.
less than 20 employees that agree to
standard form contracts valued less
than a prescribed threshold.
The Commonwealth Minister has the No equivalent.
power to specify another law deemed
equivalent and enforceable to the
unfair contract term protections.
Contracts subject to that law will be
exempt from the unfair contract term
protection contained in Part 2-3 of
the ACL.
Detailed explanation of new law
2.10 Schedule 2 of the CC Act sets out the ACL. Part 2-3 of the ACL
contains the consumer unfair contract term protection. This chapter
extends these provisions to also cover small business contracts.
2.11 Specifically, section 23 of the ACL provides that an unfair
contract term in a standard form, consumer contract will be void.
2.12 This Bill amends section 23 to provide that an unfair contract
term contained in a standard form, small business contract will also be
void. [Schedule 1, item 30, subsection 23(1) of Part 2-3 of Schedule 2]
2.13 The extension of section 23 to standard form, small business
contracts does not impact the availability of the existing protection for
consumers, including where there is any overlap (for instance, if the
parties to a contract include a consumer and a small business).
Existing concepts of the consumer unfair contract term protection to be
applied to the small business protection
2.14 Sections 24 and 27 of the ACL relate to the already existing
concepts of 'unfair' and 'standard form contract' respectively, and these
concepts will remain for the small business unfair contract term
protection.
17
Amendments to the Competition and Consumer Act 2010
2.15 In determining whether a contract term is unfair, a court may
take into account the extent to which the term is transparent, and the
contract as a whole.
2.16 The meaning of the terms 'unfair', 'detriment' and 'transparent'
are explained to some extent in the legislation, with further guidance
available from paragraphs 2.30 to 2.48 of the explanatory memorandum to
the Trade Practices Amendment (Australian Consumer Law) Bill (No. 1)
2010 (TPA Bill 2010 explanatory memorandum). Paragraphs 2.49 through
to 2.62 of the TPA Bill 2010 Explanatory Memorandum also provide
further guidance on the examples contained in section 25 of the ACL of
unfair terms, which depending on the context and contract as a whole,
could be considered as unfair.
2.17 A contract is presumed to be standard form unless otherwise
proven. This concept of 'standard form contract' is, together with a list of
matters that a court may find relevant in considering whether a contract is
a standard form contract, defined in section 27 of the ACL.
2.18 Terms that define the main subject matter and upfront price
payable under a contract, and terms required or expressly permitted by
another law, cannot be declared unfair pursuant to subsection 26(1) of the
ACL. More information on the exemption of these types of terms can be
found in paragraphs 2.63 to 2.77 of the TPA Bill 2010 explanatory
memorandum.
Meaning of small business contract
2.19 A contract is a small business contract if, at the time it is entered
into, at least one party to the contract is a business that employs fewer
than 20 persons; the contract relates to the supply of goods or services or
sale or grant of an interest in land; and the upfront price under the contract
does not exceed either $100,000, or $250,000 if its duration is more than
12 months. [Schedule 1, item 31, subsection 23(4) of Part 2-3 of Schedule 2]
2.20 The threshold places the onus on small businesses to undertake
due diligence for high-value transactions. A two-tiered transaction value
threshold is used to account for multi-year contracts. The consultation
process undertaken in 2014 indicated the transaction value threshold
would encompass most small business transactions.
2.21 The upfront price is defined in subsection 26(2) of the ACL as
the consideration that is provided, or is to be provided, under a contract;
disclosed at or before the time the contract is entered into.
2.22 Further clarification of this is provided in the TPA Bill 2010
explanatory memorandum, at paragraph 2.68:
18
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
'Consideration includes any amount or thing provided as
consideration for the supply of a good, service, financial service,
financial product or a grant of land. It would also include any
interest payable under a consumer contract.'
2.23 Paragraphs 2.72 and 2.73 of the TPA Bill 2010 explanatory
memorandum also provided that:
'The definition also requires that the upfront price must be
disclosed at or before the time the contract was entered into by the
parties. In the case of most transactions this is reasonably
straightforward, as a key pre-condition of the transaction occurring
is an understanding of the price to be paid.
A key consideration for a Court in considering whether a future
payment, or a series of future payments, forms the upfront price
may be the transparency of the disclosure of such a payment, or the
basis on which such payments may be determined, at or before the
time the contract is made.'
2.24 As with consumer contracts, there could be instances where a
small business contract sets out the basis on which some payments are to
be determined after the contract has been entered into.
2.25 An example of this is a building contract that provides the option
to choose the quality of a particular material (at different prices) used in
the construction process, during the life of the contract. The payments
under a contract could also be subject to change over time, for example, to
account for inflation. Whether payments that result from such variations
are part of the upfront price may depend on the transparency of the
disclosure of such payments or the basis on which such payments will be
determined.
2.26 The upfront price also applies to the totality of the consideration
that is paid for a supply, sale or grant under a contract. For example,
where a contract provides for the supply of multiple goods or services, the
upfront price will be the consideration for the total supply under the
contract. Although the upfront price is defined in subsection 26(2) of the
ACL as the 'consideration' that is paid for a supply, sale or grant,
subsection 23(b) of the Acts Interpretation Act 1901 provides that in any
law, words in the singular number include the plural, and vice versa.
2.27 A threshold of less than 20 employees has been chosen for this
definition, as it is a commonly used head count measure and has been
found by the Australian Bureau of Statistics to provide a good proxy for a
small business.
19
Amendments to the Competition and Consumer Act 2010
2.28 In calculating the number of persons a business employs, a head
count approach (regardless of an employee's hours or workload) is used.
Casual employees are to be counted only if they are employed on a
regular or systematic basis, to account for seasonal variations. This is the
approach used in the Fair Work Act 2009. [Schedule 1, item 31, subsection 23(5)
of Part 2-3 of Schedule 2]
Contracts exempted from the small business unfair contract term
protection
Exempting contracts subject to industry-specific legislation and
regulation that are deemed enforceable and equivalent
2.29 A contract will not be covered by the ACL's unfair contract term
protection where it is subject to an industry-specific law (legislation or
regulation of the Commonwealth, a state or a territory) that has been
deemed enforceable and equivalent and thereby exempted from the
protection. Industry self-regulation cannot be exempted as these are not
enforceable. [Schedule 1, item 40, subsection 28(4) of Part 2-3 of Schedule 2]
2.30 This regulation-making power allows the Government to limit
the operation of the ACL to ensure that the unfair contract term protection
does not duplicate protections contained in another law.
2.31 Before a law is prescribed as an equivalent and enforceable
measure, the Commonwealth Minister must consider the public interest,
the overall impact of providing the exemption, and the impact on small
businesses of prescribing the law. [Schedule 1, item 23, subsection 139G(2A) of
Division 9 of Part XI]
2.32 The Minister must also comply with any applicable
requirements stipulated by the Intergovernmental Agreement for the
Australian Consumer Law.
2.33 This is intended to provide a robust framework for the exercise
of the regulation-making power.
20
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
Exemptions already specified in the ACL
2.34 Section 28 of the ACL excludes shipping contracts and company
constitutions from coverage of the unfair contracts law. Further
information on this can be found in paragraphs 2.91 to 2.99 of the
TPA Bill 2010 explanatory memorandum.
Consequential amendments
2.35 In extending the consumer unfair contract term protection to
small business contracts, references to consumer contracts have been
modified to also refer to small business contracts. This includes:
• In the definitions section, section 2 of the ACL, the definition
of a number of terms used in the ACL's unfair contract terms
law: non-party consumer, rely on, small business contract,
transparent and unfair [Schedule 1, items 24 to 28, subsection 2(1) of
Chapter 1 of Schedule 2].
• To insert into the interpretation section, section 2, a referral
to section 27 for the meaning of standard form contract
[Schedule 1, item 26, subsection 2(1) of Chapter 1 of Schedule 2].
• The headings of the unfair contract term provisions of the
ACL [Schedule 1, items 29 and 37, sections 23 and 26 of Part 2-3 of
Schedule 2].
• To insert a requirement for the detriment to small business of
prescribing a term under paragraph 25(n) to be considered in
the same way as the detriment to consumers from prescribing
such terms [Schedule 1, item 22, subsection 139G(2)(aa) of Division 9
of Subdivision G ].
• The reference to contracts in Part 2-3 of Schedule 2 of the
ACL [Schedule 1, items 32 to 36 and 38 to 39, subsections 24(1) to (2)
and (4), 26(1) to (2) and section 25 of Part 2-3 of Schedule 2].
• Consequential amendments to Division 7 of Part XI and Part
5-2 of Schedule 2, which outline the declaration, enforcement
and remedy provisions for unfair contract terms [Schedule 1,
items 19 to 21, paragraph 137D(b) and subparagraphs 137F(2)(b)(ii) and
(d)(ii) of Division 7 of Part XI and subsection 139G(2) of Division 9 of
Part XI; Schedule 1, items 41 to 47, subsections 232(3), 242(1), 250(2) to
(5), paragraph 238(1)(b) and subparagraphs 237(1)(a)(ii), 239(1)(a)(ii)
of Part 5-2 of Schedule 2].
21
Amendments to the Competition and Consumer Act 2010
Application and transitional provisions
2.36 These amendments apply to varied terms, and contracts entered
into or renewed on or after the day the legislation comes into effect. This
will occur the day after the end of the period of six months beginning on
the day this legislation receives Royal Assent. The amendments do not
apply to a contract or term of a contract if it would result in the acquisition
of property otherwise than on just terms pursuant to paragraph 51(xxxi) of
the Commonwealth Constitution. [Schedule 1, item 48]
22
Regulation impact statement
About this Decision Regulation Impact Statement
3.0 The purpose of this Decision Regulation Impact Statement (RIS)
is to recommend a preferred policy option for dealing with the existence
of unfair terms in standard form contracts being offered to small
businesses. This RIS follows stakeholder comment on the Consultation
RIS.
3.1 This Decision RIS identifies the nature of the problem to be
solved, outlines the alternative policy options considered and explains the
rationale for selecting the preferred option. It also assesses the costs and
benefits of the preferred option compared with the other options
identified.
3.2 This Decision RIS has been provided to the Legislative and
Governance Forum on Consumer Affairs, who have endorsed the
Commonwealth's preferred option to extend consumer unfair contract
term protections to small businesses.1
3.3 This Decision RIS follows the guidelines of the Council of
Australian Governments in the Best Practice Regulation Guide (2007). It
has been certified by the Office of Best Practice Regulation as meeting the
Council of Australian Governments' best practice regulation
requirements.
Foreword
3.4 The Australian Consumer Law (ACL), a national, state and
territory law which commenced on 1 January 2011, aims to protect
consumers and ensure fair trading in Australia.2 It seeks to improve
consumer well-being through consumer empowerment and protection,
1 CAF consists of all Commonwealth, state, territory and New Zealand ministers responsible
for fair trading and consumer protection laws. CAF was formerly known as the Ministerial
Council on Consumer Affairs.
2 Competition and Consumer Act 2010 (Cth), Schedule 2.
23
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
fostering effective competition and enabling confident participation of
consumers in markets where both consumers and suppliers trade fairly.
3.5 Preventing unfair practices is one of the six operational national
consumer policy objectives, and in line with this, the ACL includes unfair
contract term protections for consumers entering into standard form
contracts. These protections enable the courts to declare void a term
within a standard form consumer contract that is 'unfair'. A term is
'unfair' if it: causes a significant imbalance in the parties' rights and
obligations under the contract, is not reasonably necessary to protect the
legitimate interests of the party advantaged by the term, and would cause
detriment to a consumer if it were relied on. The unfair contract term
protections are also replicated in the Australian Securities and Investments
Commission Act 2001 (ASIC Act) to provide protections in financial
product and service contracts.
3.6 The Commonwealth Government has committed to extending
the consumer unfair contract term protections to small businesses as part
of its Real Solutions Small Business Policy. In 2013, Consumer Affairs
Ministers agreed to consider such an extension through the Legislative
and Governance Forum on Consumer Affairs (CAF).
3.7 Small businesses are vital to the economy, generating
employment, innovation and productivity - factors that support
Australians' standard of living. Small businesses are commonly presented
with standard form contracts on a 'take it or leave it' basis and, like
consumers, can lack the time and legal or technical expertise to
understand or critically analyse these contracts, and the bargaining power
to negotiate terms or resist their enforcement. Like consumers, they can be
particularly vulnerable to the detriment that arises when an unfair contract
term is relied upon. Where small businesses decide to not enter into
contracts due to their lack of confidence in understanding and negotiating
terms or due to the cost of obtaining legal advice, they may miss out on
market opportunities.
3.8 An extensive consultation process was conducted from 23 May
to 1 August 2014 to gather information on the extent of the problem and
views from stakeholders on policy options. The consultation suggested
that there is concern with unfair contract terms in small business contracts
across a wide range of industries and circumstances.
3.9 A national unfair contract terms law for small business would be
designed to enhance rather than impede or duplicate existing industry
regulatory protections. To help businesses reduce their compliance costs,
the Australian Competition and Consumer Commission (ACCC) would
initially take an educative and compliance based approach similar to that
employed for the introduction of the consumer protections. It is expected
24
Regulation impact statement
that the Australian Securities and Investments Commission (ASIC) would
also play a role.
Consumer Affairs Australia and New Zealand3
Executive Summary
3.10 Standard form contracts are a commonly used and cost effective
option when conducting business, as they avoid the transaction costs
associated with negotiated contracts. Nonetheless, standard form contracts
are often offered on a 'take it or leave it' basis can be one-sided and have
terms that are embedded in fine print. As some parties can lack the
resources or skills to fully understand the implications of contract terms,
businesses that offer standard form contracts have an incentive to include
'unfair' terms, that is, terms that advantage their position beyond their
legitimate business interest and, if exercised, can cause detriment to the
other party.
3.11 Action has already been taken with regard to consumer standard
form contracts. In 2011, legislative protections against unfair contract
terms were introduced into the ACL and mirrored in the ASIC Act for
financial products and services.
3.12 Findings from an extensive public consultation process in 2014
indicated that small businesses, like consumers, are vulnerable to the
inclusion of unfair terms in standard form contracts. Like consumers, they
can lack the time and legal or technical expertise to understand or
critically analyse such contracts and the bargaining power to negotiate
terms. Compared to larger businesses, small businesses often have a more
limited capacity to manage certain risks when transferred to them by the
other party.
3.13 The consultation also found there are small business concerns
with unfair contract terms across a wide range of industries, and that small
businesses can suffer financial or other detriment when these terms are
exercised. Detailed information of the consultation process can be found
in the Consultation section of this document.
3 Consumer Affairs Australia and New Zealand is the pre-eminent sub-committee of CAF.
Consumer Affairs Australia and New Zealand comprises the most relevant senior officer
from consumer affairs or fair trading jurisdictions in each State and Territory, as well as the
Australian Government and New Zealand.
25
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
3.14 Currently, small businesses are not protected against unfair
contract terms. While the ACL provides a range of protections against
unfair business practices, these go to the circumstances surrounding, or
the process leading up to, the formation of a contract (procedural
fairness), not to the unfairness of particular terms. Industry mechanisms,
while offering some protections, do not provide for a general review of
unfair contract terms in standard form contracts. To deal with the
identified problem of unfair terms in standard form contracts with small
business, this Regulation Impact Statement (RIS) explored four options:
• Option 1 -- The status quo. No action is taken, contrary to
the Commonwealth Government's policy commitment.
• Option 2 -- Light touch or non-regulatory responses.
• Option 3 (preferred option) -- Legislative amendment to
extend the existing unfair contract term provisions to low
value contracts involving small businesses.
• Option 4 -- Legislation to require contracts with small
business to be negotiated on request.
3.15 The status quo does not appear to directly address the problem,
with stakeholder feedback suggesting that there are widespread concerns
with unfair terms in small business standard form contracts. Further,
current laws and regulations do not provide adequate protections against
the enforcement of unfair contract terms and there are clear incentives for
businesses to include unfair terms in small business contracts.
3.16 Adopting light-touch, non-regulatory responses or introducing
legislation that requires contracts with small business to be negotiated on
request, is not expected to adequately and systematically address the
identified problem and could impose significant compliance costs.
3.17 The preferred option is a legislative extension of consumer
unfair contract term protections to include low-value contracts involving
small businesses. This approach is expected to most substantially address
the identified problem by enabling unfair terms in these contracts to be
declared void, significantly reducing the incentive to include and rely on
unfair terms. The Commonwealth recommends the legislative extension:
• apply a small business size threshold of fewer than
20 employees, combined with a transaction value threshold
of $100,000 (and $250,000 for contracts of more than
12 months) to target low value small business transactions;
and
26
Regulation impact statement
• allow for the exemption of enforceable and equivalent
legislation and regulation.
3.18 This approach achieves an appropriate balance between
protecting those businesses most likely to lack sufficient resources and
bargaining power, while preserving contractual freedom and certainty, and
encouraging businesses to take reasonable steps to protect their interests.
The problem
3.19 The problem that has been identified is that standard form
contracts being offered to small businesses often include unfair terms that,
if relied on, can cause significant detriment.
Standard form contracts
3.20 Standard form contracts are pre-prepared contracts typically
offered on a 'take it or leave it' basis by a party with greater bargaining
power. Generally, a contract is considered to be standard form if one of
the parties has not had the opportunity to negotiate or change the terms of
the contract when agreeing to it.
3.21 As indicated in the recent consultation process, standard form
contracts are widely used in Australia when businesses and consumers
purchase goods and services.
• In the survey conducted as part of the public consultations
process (see Attachment A: Survey results), 80 per cent of
respondents indicated they were offered a standard form
contract within the last 12 months.
• The survey indicated that standard form contracts are used in
a wide range of industries, including: telecommunications,
insurance, banking and financial products, utilities, and
supply agreements.
3.22 Stakeholders have suggested that there are a number of benefits
of standard form contracts, as they save businesses time and resources,
particularly for repeated transactions. Lower costs associated with using
standard form contracts can enable businesses to offer more competitive
pricing on goods and services than if individual terms were negotiated
with each customer.
3.23 However, stakeholders also suggested that there are a number of
drawbacks associated with the use of standard form contracts, particularly
27
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
that they are not negotiated, often one-sided and include terms that are
embedded in fine print.4 Further, some consumers and businesses signing
the contract may not have the resources or skills to fully understand the
implications of the terms they are presented. These factors can provide an
incentive for the inclusion of unfair terms.
The inclusion of unfair terms in standard form contracts
3.24 The survey indicated that most businesses mainly focus on the
price and quality of the good or service they are purchasing and not the
terms and conditions in the contract (see Attachment A: Survey Results).
Further, small businesses indicated that they lacked the resources to
negotiate standard form contracts.
• Around 65 per cent of small business respondents in the
survey agreed or strongly agreed that their business lacks the
resources to negotiate standard form contracts.
3.25 As a result, businesses offering standard form contracts often
compete on the price and the quality of the good or service and not on the
terms and conditions in the contract.
3.26 This provides incentives for those businesses offering standard
form contracts to include terms that advantage their position beyond their
legitimate business interest and could be considered 'unfair'. Businesses
can invest significantly in expert legal and commercial advice to carefully
calibrate contractual provisions to shift certain risks onto business signing
the contract.
• There may also be a tendency for large businesses to base
new versions of their standard form contracts on those
currently being used by their competitors. This practice can
result in poorly drafted and unfair contract terms being
duplicated and multiplied across entire industries.5
3.27 Where a business can supply goods or services at a lower price
by including 'unfair' terms (for example, by shifting certain risks onto the
other party), businesses that offer more favourable terms may be unable to
compete with those that offer contracts with unfair terms.6
4 See, for example, submission by Law Council of Australia SME Committee.
5 See, for example, submission by Law Council of Australia SME Committee.
6 In this context, the concept of 'risk' can include a range of contractual arrangements, for
example, limitations on the parties' rights in legal proceedings against each other and the
28
Regulation impact statement
3.28 While business will understand and appreciate the significance
of terms in contracts that they negotiate individually, some businesses
signing standard form contracts are not aware of the presence of 'unfair'
terms. Some businesses may decide not to expend the necessary resources
to understand the terms where they lack the bargaining power to negotiate,
or they may consider the costs disproportionate to the perceived risk of
detriment that might result from entering into the contract.
3.29 Even if some customers have the resources and bargaining
power to negotiate away unfair terms or resist their enforcement, if a
majority of customers do not there would still be an incentive to include
them.
• Competitive forces may restrain the incentive for businesses
to offer contracts with unfair terms, particularly where a large
number of businesses have a good understanding of the terms
and/or have significant bargaining power, and where loss of
reputation and potential market share is a consideration.
What is an unfair term?
3.30 The current consumer protections for unfair contract terms
define an unfair term as a term that:
• causes a significant imbalance in the parties' rights and
obligations under the contract;
• would cause detriment (whether financial or otherwise) to a
party if it were to be relied on; and
• is not reasonably necessary to protect the legitimate interests
of the party who would be advantaged by the term.7
3.31 This definition of unfairness recognises that while some contract
terms may be perceived as 'unfair' by some parties, they may serve
legitimate business interests and as a result should not be considered
unfair.
parties' rights to change the contract. Relevant contracts include on-going commercial
arrangements, such as leases.
7 There are a number of factors to consider when deciding whether a term is potentially
unfair, with the final decision on whether a term is unfair made by a court. In determining
whether a term is unfair, the court is required to take into account the transparency of the
term and the contract as a whole. See Attachment B: Consumer unfair contract terms
protections in the Australian Consumer Law.
29
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
• Some level of flexibility and uncertainty may be necessary in
some types of contracts. For example, a supplier may
legitimately use contract terms to pass risk to another
business for events that they are able to influence, therefore
providing the supplier with a contractual basis for seeking
redress from counterparties that act in bad faith and allowing
supply to other parties at a lower price.
3.32 The focus of this RIS is on substantive as opposed to procedural
unfairness; that is the actual wording of the contract rather than the
circumstances surrounding or the process leading up to the formation of a
contract.
Small business vulnerability to unfair terms
3.33 Findings from the recent consultation process suggest that like
consumers, small businesses are vulnerable to the inclusion of unfair
terms in standard form contracts as they often lack:
• the resources to identify unfair terms, appreciate their
significance and determine whether they can manage the
associated risks;
• the resources to engage in negotiations over the terms of a
contract;
• the bargaining power to successfully negotiate the terms of a
contract; and/or
• the resources and bargaining power to resist the enforcement
of unfair contract terms.
3.34 Responses to the consultation survey8 indicated that small
businesses9 are more likely to lack resources and bargaining power than
medium and large businesses. They:
• are less likely to have in-house legal expertise (8 per cent of
respondents), seek legal advice on contracts (8 per cent often
or always seek legal advice)10 and be able to afford legal or
8 See the summary of results in Attachment A: Survey results.
9 Small business respondents are defined as those with fewer than 20 employees for the
purposes of the survey.
10 In the survey conducted by Consult Australia of its members, it was found that just under
half of respondents did not seek professional legal advice, while those respondents who
30
Regulation impact statement
financial advice for every contract they sign (82 per cent
agree or strongly agree);
• generally have less understanding of the common terms and
conditions found in standard form contracts; and
• are more likely to feel that their business does not have the
resources to negotiate a better deal (65 per cent) or that
standard form contracts are offered on a 'take it or leave it
basis' with terms that cannot be negotiated (69 per cent).
3.35 Similar findings were reported by the Small Business
Development Corporation of Western Australia (SBDC) which conducted
a short survey of small businesses to support its submission to the
consultation.11 It reported that small business respondents were likely
to believe that the other party would not negotiate contract terms and
69 per cent reported being offered contracts on a 'take it or leave it' basis.
In addition, 40 per cent of respondents reported not having the power to
negotiate.
3.36 While some medium and large businesses can also lack legal
resources and bargaining power, larger businesses generally dedicate
more time and resources to reading and understanding standard form
contracts than small businesses.
3.37 Additionally, stakeholder submissions suggested that standard
form contracts are often offered in situations where there is not sufficient
time to review the terms of the contract.
• For instance, where a term may be questioned, not all
business representatives/sales people presenting the contract
have the authority to make changes to the contract.
3.38 Businesses of all sizes indicated that when purchasing a good or
service using a standard form contract, the main focus was on the price
and quality of the goods or services they were purchasing or supplying,
not the terms of the contract.
• While most respondents indicated that they often or always
reviewed standard form contracts, the majority of
indicated they did obtain professional legal advice overwhelmingly only used this advice
sparingly, with more than half of respondents answering that they only obtained that advice
for less than 20 per cent of contracts. See Consult Australia submission.
11 See Attachment A: Survey results.
31
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
respondents in the survey indicated that they were less likely
to review contracts when the transaction value is low, the
contracts are perceived as low risk or the contract is a
renewal.
The inclusion of unfair terms in small business contracts
3.39 Feedback from the survey, submissions and stakeholder
meetings indicate that unfair terms in standard form contracts are being
experienced by small businesses across a wide range of industries.12
• Of the small business survey respondents who reported being
offered standard form contracts, 60 per cent claimed to have
experienced unfair terms with a wide range of goods and
services identified.13 The most common concerns cited were
in relation to automatic rollovers and termination.
3.40 Industries where unfair terms were reported in stakeholder
submissions included: telecommunications, financial products and
services, franchising, retail tenancy, waste management, architecture,
independent contractors and advertising (see the Consultation section for
further information).14
3.41 More generally, there was concern with a wide range of contract
terms, such as those that permit one party to unilaterally vary terms, limit
their obligations, terminate or renew the contract, levy excessive fees or
usurious interest rates on outstanding monies, or affect the availability of
redress. A number of stakeholders provided specific examples of unfair
terms.15
12 See consultation section for further information.
13 Respondents were informed that the ACL contains provisions to protect consumers against
unfair terms in standard form contracts and were given examples of terms that may be
considered unfair. Some stakeholders did raise examples that were more related to
procedural unfairness, while others raised issues with the fairness of the upfront price
(currently not captured by consumer unfair contract terms protections).
14 See, for example, the anonymous submission to the review, which noted that their use is
widespread; for example, employee contracts, contracts for outsourced cleaning, rubbish
removal, and financial and accounting services. Other submissions supporting this notion
include those by: Australian Automotive Dealer Association; DM Lock; Footscray
Community Legal centre; Independent Contractors Australia; and Victorian Small Business
Commissioner.
15 See, for example, submissions by the Victorian Small Business Commissioner, Small
Business Development Corporation of Western Australia and the Telecommunications
Industry Ombudsman.
32
Regulation impact statement
3.42 With over two million small businesses in the Australian
economy and the consultation survey suggesting that a high proportion of
small businesses experience unfair terms, it is likely that a significant
number of businesses in the economy are being impacted by unfair
contract terms, particularly with small businesses engaging, on average, in
several standard form contracts per year.16
Small business concerns about unfair contract terms in standard form
contracts
3.43 The consultation suggested that small businesses are at times
willingly agreeing to contracts that contain potential unfair terms. This
could reflect the lack of competition for businesses to offer 'fair' contract
terms, for example, where there are no viable alternative sources of
supply.
• Some stakeholder submissions indicated that, when faced
with a contract with an unfair term, small businesses can feel
they have little choice but to accept the contract in the belief
that this is the only avenue to the commercial opportunity
they are seeking, predicated on the hope that a more mutually
accommodating attitude may operate between the parties in
practice.
• Small business survey respondents who had identified an
unfair term in a standard form contract were more likely to
do nothing compared to medium and large business
respondents, as they did not feel like they were able to
negotiate (42 per cent of small business respondents
compared with 26 per cent of medium and large business
respondents). Medium and large business respondents were
more likely to look for an alternative provider (41 per cent of
medium and large business respondents compared with
28 per cent of those from small businesses).
3.44 The survey indicated that respondents who thought they had
experienced an unfair term were most likely to seek resolution through
informal channels. A minority of respondents indicated that they tried to
resolve issues through formal channels such as complaining to a regulator
(such as the ACCC or ASIC), participating in dispute resolution
(including through a state Small Business Commissioner) or by pursuing
legal action.
16 Respondents to the survey reported a median of five standard form contracts being offered
in the previous 12 months.
33
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
• While there are currently no legislative protections for small
businesses, the ACCC received 1375 small business
complaints relating to unfair contract terms between the
commencement of the consumer protections on
1 January 2011 and 31 December 2014 (see Table 3.1
below). The complaints made to the ACCC related to a wide
range of terms, with the most common concerns being about
terms relating to automatic rollover, termination, restricting
rights and liability and franchising.
3.45 Small businesses have also directed complaints to state and
territory fair trading bodies, state small business commissioners and
industry ombudsman. Data collected from state small business
commissioners suggest that complaints around potential unfair contract
terms represent a significant amount of their total complaints:17
• The Victorian Small Business Commissioner (VSBC)
reported receiving between 300 and 400 complaints per
annum between mid-2012 and February 2015. Of these, they
estimate that approximately 10 per cent concern potential
unfair contract terms.
3.46 Complaints through these formal channels are likely to represent
a very small share of small business concerns around unfair contract terms
over this period. The consultation survey showed that of the small
business respondents who reported experiencing unfair contract terms in
the last 12 months only 12 per cent stated that they had pursued formal
resolution, including making a complaint to a regulator (such as the
ACCC, ASIC or relevant fair trading office), participating in dispute
resolution (such as through a state small business commissioner) or
pursuing legal action.
• The VSBC have also suggested that the number of
complaints they have received relating to potential unfair
contract terms likely reflect only a very small proportion of
the issue. The VSBC noted that research by ORIMA18
reported that between three and five per cent of Small to
Medium Enterprises (SMEs) experience a significant
commercial business-to-business dispute per year. The
VSBC state that, if 10 per cent of these disputes related to
unfair contract terms in line with their experience, it would
17 For example, see submissions by the Victorian Small Business Commissioner, New South
Wales Small Business Commissioner and Telecommunications Industry Ombudsman.
18 ORIMA Research, 2010, Small Business Dispute Resolution.
34
Regulation impact statement
be expected that between 16,000 and 26,000 SMEs would
experience such a dispute.
• Some small businesses may not be making formal complaints
given that there are currently no legislative protections in
place.
3.47 Based on the complaints data available, combined with results
from the survey around small business complaint behaviour, it is therefore
likely that this issue is impacting on a significant proportion of Australia's
over two million small businesses.
Table 3.1: ACCC unfair contract term and small business complaints:
Category Number
Franchising (not Franchising Code related) -- other. 260
Automatic Rollover -- a subset of termination complaints in which 252
the contract automatically rolls over for excessive periods for
example five years or more.
Termination -- clauses that unfairly restrict the small businesses 235
right to terminate the contract.
Unilateral Contract Variation -- clauses that allow the other party 141
to change the contract without the consent of the small business.
Unfair contract terms -- other. 129
Restricting Rights and Liability -- clauses that unfairly limit the 115
other party's liability under the contract or restrict the ability of the
small business to enforce their rights under the contract.
Cancellation fees -- a subset of termination complaints in which the 99
small business is required to pay excessive cancellation fees for
example in excess of $25,000 for a contract worth substantially less
than the fee.
Retrospective Variation -- a subset of unilateral variation 65
complaints in which the contract contains clauses that allow for
retrospective variation of terms and conditions.
Franchising (not Franchising Code related) -- exclusive supply 33
contracts.
Unfairly assigning risk -- contracts that place unfair requirements 24
on the small business for things outside of their control for example
payment for damage by a third party to equipment.
Franchising (not Franchising Code related) -- geographical clauses. 22
Total 1,375
Source: ACCC
35
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
Small business detriment due to unfair contract terms
3.48 The existence of unfair contract terms does not necessarily mean
that such terms will be enforced or relied upon by the business that offers
the contract. Reasons why unfair contract terms may not be enforced
include:
• where they are triggered by events that may not occur --
such as defaults or failure to provide a service (that is, they
may be low probability, high cost events); and
• where a business does not choose to enforce the term if they
consider that the cost (for example, loss of reputation or loss
of future business of the affected customer) is greater than
the anticipated benefit.19
3.49 Detriment arises where unfair contract terms are enforced (or at
least where there is an expectation they will be enforced).
3.50 The consultations indicated that detriment is being suffered by
small businesses, who often have limited ability to resist the enforcement
of unfair terms. Of the survey respondents who experienced unfair
contract terms, almost half incurred some harm or loss.
• Of the 58 survey respondents who reported incurring losses
in the survey, 76 per cent of these respondents undertook
informal negotiations with the other party to address the
unfair contract term and 28 per cent sought resolution
through formal channels (some used both formal and
informal methods). Of those using formal negotiations, three
quarters indicated that they incurred additional costs to their
business.
• Losses generally ranged from $1,200 to $20,000 (although
one respondent claimed a loss of $2 million).20
• Examples listed by respondents included: loss of clients due
to a failure to back a product, a significant amount of
management time and legal advice and paying a high
termination fee.
19 While it may be claimed that competitive processes do not eliminate the existence of unfair
contract terms, there may be competitive forces restraining their use. See Productivity
Commission, 2008, Review of Australia's Policy Framework, page 426.
20 Note: only a small number of respondents answered this question.
36
Regulation impact statement
3.51 The SBDC contends that many small businesses in Australia
have suffered detriment as a result of an unfair contract term being
enforced against them. Their submission to the consultation process
provided evidence and case studies to highlight the extent of this
detriment not only to the small business but to its owner and their family.
• The SBDC reported that financial loss was the most
commonly mentioned detriment in their survey (30 per cent
of respondents), followed by loss of business opportunity
(16 per cent); the creation of compliance obligations that
required unreasonable time and effort to address (16 per cent)
and reputational damage (13 per cent).
Inefficient allocation of risk
3.52 The consultations indicated that an unfair contract term can shift
risks to the party that is less able to manage them effectively.21 In many
cases, this can be a small business that is less likely than the other party to
have robust risk management procedures and policies in place and is less
able to absorb the detriment if an unfair term is enforced.
• For example, an unfair contract term may require the small
business to bear the risk of a high cost, low probability event.
While this may result in a lower contract price, the small
business may be taking on risks they are unable to effectively
manage.
• In its submission, the Association of Consulting Architects
indicated that for contracts governing architectural services
there is a 'developing tendency for clients to seek to transfer
an unreasonable amount of risk to the architectural team,
without appropriate compensation for bearing this risk, or to
transfer risk for items that are outside the architect's
control.'22
21 The businesses offering the contract are usually better informed about, and may be able to
control to a reasonable extent, the risks associated with the quality, timeliness and continuity
of supply. Such redistribution of risk may reduce incentives for the business offering the
standard form contract to manage risks efficiently.
22 See page 2 of the Association of Consulting Architects' submission.
37
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
Transaction costs
3.53 A business seeking to avoid signing a contract that includes
unfair terms may incur substantial costs in gaining the necessary
information to assess whether they are present.23
• As small businesses often lack in-house legal expertise,24 the
cost of gaining this information, even for a simple standard
form contract (one to two pages), can cost several thousand
dollars.25 For low value contracts this can be viewed as
disproportionately high and, therefore, not worth
undertaking.
Other costs
3.54 With concerns about potential detriment, the presence of unfair
contract terms can weaken small business' confidence in contracting. This
can have negative impacts on the broader economy as small businesses
account for 97 per cent of all businesses and generate a large share of total
employment.26
• As one stakeholder noted: 'The direct cost of unfair contract
terms is borne by the contracted party, and affects their
ability to run a successful business, to produce work of high
quality, to offer good employment conditions and to grow the
business.'27
3.55 Unfair contract terms can also entrench unequal bargaining
power. In submissions to the consultation process, some stakeholders
noted that businesses with strong bargaining power (and at times their
affiliated partnering organisations) can offer contracts that include terms
that further displace the balance of power between the parties.
3.56 Unfair contract terms also violate the ethical principle of fairness
in contracts. In its 2008 report, the Productivity Commission found this to
be the strongest argument for acting on unfair contract terms, though they
23 Ex ante (transaction) costs are costs incurred by a business before a contract is signed. These
costs include search and information costs, such as internal resources or legal fees for
contract review and examination.
24 Only eight per cent of respondents to the survey with less than 20 employees reported they
had in-house legal advice. See Attachment A: Survey results.
25 Estimates were provided for the Law Council of Australia Competition and Consumer
Committee.
26 ABS catalogue no. 8165.0.
27 See page 1 of the Association of Consulting Architects' submission.
38
Regulation impact statement
also noted that while many ethical norms are valued, not all are legally
enforceable.28
Can existing laws and industry mechanisms address the problem?
3.57 The ACL, the ASIC Act and the common law enshrine the
concept of fairness in contractual dealings in a number of ways.
Businesses can receive a number of protections under the ACL and ASIC
Act that are also afforded to consumers and which may provide some
level of indirect protection from unfair contract terms in specific
circumstances. However, there are currently no legislative protections or
other dispute resolution mechanisms that specifically address unfair
contract terms in contractual dealings between businesses.
3.58 This is because the protections are designed to address issues of
'unfair' behaviour in business-to-business or business-to-consumer
dealings, not the unfairness of terms themselves. Where there are
protections against unfair terms, these are only in relation to consumers.
3.59 While there are currently some industry-specific legislation or
regulation, which can provide protection against unfair contract terms,
these are generally limited in application and do not provide the level and
scope of protection that is considered necessary to address the identified
problem.
3.60 As a result there is a regulatory gap and small businesses remain
vulnerable to unfair contract terms across a wide range of circumstances.
3.61 This issue is discussed further in the Status Quo section and at
Attachment C: Existing laws and regulations.
Is there a role for Government intervention?
3.62 In the absence of adequate protections, and given small
businesses generally lack the resources and bargaining power to
effectively review and negotiate terms or resist their enforcement, there is
currently an incentive for businesses to include unfair terms in standard
form contracts offered to small businesses. This can result in an inefficient
allocation of risk, with small businesses often not appreciating the risks
they are taking on and being poorly placed to manage them effectively
28 Productivity Commission, 2008, Review of Australia's Consumer Policy Framework,
page 151.
39
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
and, when unfair terms are enforced, they can cause significant business
detriment.
3.63 Therefore, there is a clear policy case for intervening to protect
small businesses against unfair terms in standard form contracts.
3.64 In designing an intervention, it is important that there is an
appropriate balance between contractual freedom and certainty and
protection for small business. To the maximum extent possible, the
intervention should not interfere in the conduct of commercial dealings
nor undermine the 'sanctity of contract' principle.29 To achieve this, the
intervention should target standard form contracts entered into by those
businesses most likely to lack sufficient resources and bargaining power.
It will also be important to consider whether the intervention should not
apply to contracts where it would be reasonable for a business to
undertake appropriate due diligence before signing (that is, standard form
contracts where the cost of obtaining legal advice is likely to be
proportionate to the contract value).
Objective of reform
3.65 The objective of this reform is to promote fairness in contractual
dealings with small businesses with regard to standard form contracts.
This will reduce small business detriment and have positive impacts on
the broader economy by increasing small business certainty and
confidence, and providing for a more efficient allocation of risk. Small
businesses, in dealing with other businesses through standard form
contracts, should have confidence that the contract they are offered is fair
and reasonable and that the risks are allocated efficiently.
3.66 In achieving this, it is important that the benefits of the chosen
intervention exceed the costs. This includes providing, to the maximum
extent possible, business certainty as to the application of the protections
and providing affected businesses with timely and affordable access to
justice.
29 The 'sanctity of contract' principle emphasises that parties are to be held to the agreements
that they have freely made. The ideal ensures that both parties in a contract honour and
respect the terms and conditions agreed upon in a contract, where goods and services are
traded and exchanged for consideration.
40
Regulation impact statement
Policy options
3.67 There are a several possible interventions, ranging from a focus
on customer empowerment (demand-side measures) through enhancing
the quality or type of information available, to a focus on modifying the
behaviour of those businesses offering standard form contracts (supply-
side measures) and through encouraging the development of industry
self-regulation which protects against or mandates certain practices.
3.68 This RIS identifies four main options:
• Option 1 -- the status quo;
• Option 2 -- light touch or non-regulatory responses;
• Option 3 (preferred) -- extend the current consumer unfair
contract term protections to small businesses; and
• Option 4 -- legislate to require small business standard form
contracts to be negotiated on request.
3.69 These options do not change the relative bargaining power of
parties that is present at the contract formation stage. Rather, they seek to
either address the imbalance of information available about contract terms
and/or protect against the enforcement of unfair contract terms in small
business standard form contracts.
Option 1 - Status Quo
3.70 Under this option, there would be no intervention with existing
regulations and market forces relied upon to address the identified
problem.
3.71 This option is inconsistent with the Commonwealth
Government's policy commitment and CAF's agreement to explore unfair
contract terms protections for small businesses.
3.72 As highlighted in previous sections, relying on the status quo
will not address the problem as under current arrangements there are clear
incentives for businesses to include unfair terms in the standard form
contracts they offer to other businesses and there are no protections
against their enforcement.
3.73 Submissions to the consultation process broadly acknowledged
that there is a systemic problem with unfair terms in standard form
contracts across a wide range of business sizes and industries, although
41
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
some stakeholders expressed the view that certain industries already had
adequate protections against unfair contract terms.30
Relying on current laws and regulations
3.74 The common law the ACL and the ASIC Act enshrine the
concept of fairness in contractual dealings in a number of ways.
The common law
3.75 The doctrine of freedom of contract under the common law has
two key aspects: that every person is free to enter into a contract with any
person they choose; and to contract on any terms they want. The intent is
that the voluntary wills of the parties expressed in the contract should be
enforceable.
3.76 In practice though, some consider this provides the more
powerful party to a contract with 'a freedom of manipulation and
motivation, [and] a freedom from any onus of articulation ...'31
Consequently, disparities in bargaining positions between the business
offering the contract and the business agreeing to the contract may mean
that the party agreeing to the contract is not always free to negotiate the
terms under which they contract.
3.77 Manipulation may also occur where a business signing a
contract does not have the resources or skills to completely understand the
implications of the contractual terms they are offered. As raised earlier,
this is particularly a concern for contracts involving small businesses.
The ACL
3.78 There are a number of consumer protections under the ACL that
may indirectly discourage the inclusion of unfair terms in small business
contracts and/or provide a level of indirect protection for small businesses
from unfair contract terms in limited circumstances.32 Some of these
include:
• consumer unfair contract term protections;
30 It should be noted that the majority of submissions did not refer to the status quo option and
only a few submissions (e.g. Federal Chamber of Automobile Industries) had it as their
preferred option.
31 Boldeman, L 2007, The Cult of the Market -- Economic Fundamentalism and its
Discontents, ANU E Press, page 254.
32 These protections, to a large extent, are mirrored in the ASIC Act. The equivalent provisions
in the ASIC Act apply to most financial products and services purchased by consumers.
42
Regulation impact statement
• prohibitions against unconscionable conduct;
• consumer guarantees; and
• misleading or deceptive conduct.
3.79 These protections have been designed to not specifically deal
with the fairness of contractual terms but rather matters of 'procedural
unfairness' - the unfairness of the circumstances surrounding, or the
process leading up to, the formation of a contract.
3.80 As a result, they do not provide direct protection for small
businesses against unfair contract terms across the wide range of
circumstances that have been identified as problematic, leaving a
significant gap in protection for small businesses.
3.81 Further, based on the way these protections are designed, they
are unlikely to sufficiently deter the inclusion of unfair terms in contracts,
particularly where a term can be unfair regardless of any procedural
unfairness.
Consumer unfair contract term protections
3.82 The existing unfair contract term provisions for consumer
standard form contracts in the ACL may reduce the inclusion of unfair
terms in contracts being offered to small businesses, where businesses
offer the same contracts to both consumers and small businesses, and
choose to comply with the consumer unfair contract term provisions.
However, small businesses have no legislative protection where unfair
terms are present or enforced.
3.83 It is likely that only a small proportion of small business
contracts would be indirectly impacted by these provisions, with
businesses only offering the same consumer contracts to small businesses
in particular circumstances. The survey results showed only 15 per cent of
respondents offer contracts to both small businesses and consumers.
Prohibitions against unconscionable conduct
3.84 The ACL prohibits unconscionable conduct in trade or
commerce in connection with the supply of goods or services to a person
(other than a publicly listed company), which includes small businesses.33
In considering whether there has been unconscionable conduct, a court
33 See section 21 of the ACL. See also section 12CB of the ASIC Act, which includes
equivalent protections for the provision of financial products and services.
43
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
may, but is not required to, consider the terms of a contract, amongst a
range of other factors. Therefore, in some circumstances a court may
consider the fairness of the terms of the contract as part of a broader
assessment of whether there has been unconscionable conduct.
3.85 In practice, statutory unconscionable conduct provisions are not
used to find a contract term unfair. Consequently, it is not clear whether
statutory unconscionable conduct provisions can deal with unfair contract
terms in themselves. As a result, it is unlikely that these provisions
provide businesses offering contracts to small businesses with sufficient
disincentives to not include unfair terms in contracts.
Consumer guarantees
3.86 Under the ACL, suppliers of goods and services must adhere to
the specified consumer guarantees which cannot be excluded, modified or
limited by contract. Consumer guarantees primarily apply to core terms
regarding the nature and quality of the good or service, rather than terms
relating to matters such as dispute resolution or in the length of the
contract. Consequently, consumer guarantees do not directly address
unfair contract terms.
Misleading or deceptive conduct
3.87 Under the ACL, a person must not engage in misleading or
deceptive conduct, or make certain kinds of false or misleading
representations with respect to goods or services.34 These protections are
unlikely to directly address unfairness of contract terms, as a contract term
can be unfair without necessarily being misleading or deceptive.
3.88 There could be some protections for small businesses where
disclosure of a contract term is found to constitute misleading or deceptive
conduct. However, the Law Council of Australia SME Committee
suggested in their submission that small businesses have not been
successful in the past in arguing that a failure of a large company to
disclose an unfair term constituted misleading or deceptive conduct. They
suggest that these arguments have generally not been successful mainly
because it is difficult to argue that a particular unfair contract term is
'unusual' when it appears in virtually every standard contract used in a
particular industry.
34 Section 18 of the ACL.
44
Regulation impact statement
Industry-specific mechanisms
3.89 There are some industry-specific mechanisms that explicitly
prohibit the use of unfair contract terms in standard form contracts offered
to business, such as the Independent Contractors Act 2006 (Cth) and the
Motor Vehicle Dealers and Repairers Act 2013 (NSW). However, these
are limited to those specific sectors.
• The Motor Vehicle Dealers and Repairers Act 2013 (NSW)
provides unfair contract term protections for the supply of
motor vehicles between motor dealers and manufacturers.
The Independent Contractors Act 2006 (Cth) also allows
independent contractors to seek judicial review of a services
contract on the grounds that the contract is 'unfair' or
'harsh'.
3.90 Some industry mechanisms, such as the Franchising Code, are
focused on dealing with specific industry characteristics which drive the
need for special protection. For example, the Franchising Code addresses
issues that can arise from the imbalance in bargaining power and
dependence of a franchisee on a franchisor. In the absence of regulation,
franchisees may be vulnerable to opportunistic conduct and abuse of
power by franchisors.
3.91 These industry mechanisms can provide requirements for
specific contract terms and may therefore go some way to addressing a
limited amount of specific unfair contract term issues in these sectors.
• For example, the Franchising Code sets out a number of
protections and disclosure requirements, including cooling
off rights, and was recently strengthened by the introduction
of a general duty on the parties to act in good faith. It also
limits the enforceability of certain terms, such as a restraint
of trade clause, if certain conditions are met on conclusion of
the agreement.
3.92 However, mechanisms do not provide for a general review of
unfair contract terms in standard form contracts, which was an issue raised
in the consultation process. For further information on these protections
see Attachment C: Existing laws and regulations.
Relying on market forces
3.93 As discussed in The Problem section, the evidence suggests that
market forces create incentives for businesses to include unfair terms in
standard form contracts, particularly where businesses tend to focus on
price and quality, and do not fully understand or value the meaning of
45
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
contract terms. These pressures are only partially ameliorated by concern
about reputation or customer loyalty that may discourage businesses from
enforcing unfair terms in some circumstances.
Impact Analysis
3.94 Benefits of maintaining the status quo include:
• no interference in contractual dealings, including affecting
current incentives to adopt standard form contracts;
• businesses not being subject to additional compliance costs;
and
• no impact on the price of goods and services, which may
occur if the intervention to remove unfair terms from
standard form contracts results in an increase in costs.35
3.95 Costs associated with maintaining the status quo include:
• the continued inefficient allocation of risk in many standard
form contracts, where risk is allocated to the party less able
to manage it effectively, reducing overall economic welfare;
• the continued incidence of small business detriment resulting
from the enforcement of unfair contract terms;
• a sub-optimal level of small business confidence in
contracting, leading to lower investment, innovation and
engagement in economic and employment growth
opportunities; and
• regulatory agencies continuing to incur costs in handling
disputes and/or complaints from small business about unfair
contract terms but remaining unable to take action.
Option 2 -- Light touch or non-regulatory responses
3.96 Under this option, a range of light touch, industry self-regulation
or non-regulatory measures could be adopted or promoted to address the
identified problem and complement existing measures. These include:
35 Note though that while suppliers may charge lower prices under the status quo, small
businesses would be better off paying a higher price for a contract that sees more of the risk
in the transaction remaining with the supplier where they are best place to manage that risk.
46
Regulation impact statement
• industry initiatives to discourage the use of, and/or increase
transparency and understanding with regard to, unfair terms
in standard form contracts (for example, voluntary industry
code of conduct);
• awareness and information campaigns targeted at small
businesses, for example, guidance on what may constitute an
unfair term and the possible implications of agreeing to them;
and
• information disclosure requirements regarding the use of
unfair terms in standard form contracts.
3.97 Only a few submissions to the consultation expressed a
preference for such an approach (for example, Australian Industry Group
(Ai Group), Business Council of Australia (BCA)).
Industry initiatives
3.98 Industry could develop self-regulation measures such as
voluntary standards or a voluntary code of practice that sets out the types
of terms that should not be included in standard form contracts offered to
small businesses.
• In their submission, Ai Group36 suggested the use of a
voluntary 'fair contract' mark (or label) for standard form
contracts that meet an agreed standard.37
Impact Analysis
3.99 Such measures would see industry taking a proactive role in
reducing the incidence of unfair terms in standard form contracts and
providing more information to small businesses. It would likely result in
different approaches being adopted which would arguably allow for
responses tailored to the particular circumstances of a given industry.
3.100 However, the presence of multiple industry-specific rules may
increase the compliance burden and uncertainty in business dealings,
36 They suggest that 'fair contract principles' could be developed through a consensus process
managed by a reputable standards organisation with a committee made up of representatives
that included legal experts, relevant federal, state and territory agencies and small and large
businesses.
37 The Business Council of Australia suggested that there could be more effective
implementation of existing industry codes.
47
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
particularly for businesses that operate across industries. Small businesses
with limited resources are likely to face particular challenges.
3.101 Differential treatment across industries could also leave a small
business protected from particular unfair contract terms in some
circumstances but not in others, and there may be an incentive for
businesses offering standard form contracts to adjust their contracting
practices to avoid being captured by an industry initiative.
3.102 In addition, this option relies on industry players reaching
agreement on the self-regulation measure. Where this is not achieved,
small businesses remain vulnerable to unfair contract terms and
governments may have limited scope to respond where voluntary
compliance proves inadequate.
3.103 For these reasons it is unclear whether this approach would
adequately address the identified problem throughout the economy
without generating significant uncertainty and compliance costs for
businesses.
Awareness and information campaigns
3.104 An awareness and information campaign would involve
measures to improve small business' awareness and understanding of
unfair terms in standard form contracts and could be implemented by
governments or as part of an industry initiative. Guidance on what unfair
terms could be included, together with a 'list of common unfair terms'
and/or a suggested set of default rules or templates for standard form
contracts for a variety of transaction types.
3.105 Information campaigns can raise awareness regarding the nature
and potential impact of unfair terms in standard form contracts and the
rights and protections available under existing laws.38 This may encourage
small businesses to review standard form contracts more closely and be
more prepared to negotiate terms, as well as discourage businesses from
including unfair terms in the standard form contracts they offer. This
could be regarded as promoting 'best practice' in contracting with small
businesses.
38 The issue of improved information was raised in the submission by the Business Council of
Australia which suggested that 'better information for business about their protections under
the prohibition of unconscionable, misleading or deceptive conduct provisions of the
[Competition and Consumer Act 2010 (Cth)]. This would include more accessible
information and guidance on unfair standard contract terms, industry codes of conduct and
existing legal protections', at page 8.
48
Regulation impact statement
• In their submission, the BCA suggested that more accessible
information and guidance could be provided on unfair terms
in standard form contracts, industry codes of conduct and
existing legal protections.39 Consult Australia suggested that
small business commissioners or equivalent offices around
Australia could be strengthened to undertake educational
activities targeted at small businesses and their clients to
enhance understanding of unfair contract terms and their
impact.
• The Association of Consulting Architects suggested the
creation of a list of non-negotiable content for contracts.
Impact Analysis
3.106 Key benefits of this approach are that it would not impact upon
the 'sanctity of contract' and greater awareness may facilitate competition
in the use of standard form contracts, which in turn could lead to
improved quality and increased variety of terms.40 It could also increase
small business confidence in contracting.
3.107 However, there is a risk the approach will not address the
identified problem as small businesses may lack the resources to seek out
and absorb the available information or may disregard its value,
particularly where they commonly engage in low-value standard form
contracts or undervalue less salient features of contracts (for example,
costs associated with low probability risks). Also, even if small businesses
become better at identifying unfair contract terms they may still lack the
bargaining power to effectively negotiate their removal and if they agree
to the contract they have no protection against its unfair terms.
• Given the meaning of 'unfair' is contextual, there are risks
with characterising a particular term as 'unfair' where it may
not be in all circumstances. This could impose inflexibility
on contracting practices and create an incentive for 'gaming'
by using terms with substantially the same effect but that are
not described exactly as those on the list. It may also be
impracticable to identify a comprehensive list front and it
39 For example the Business Council of Australia suggested this more information on unfair
contract terms could be provided through regular publication of small business unfair
standard contract term complaint outcomes and their resolution by businesses, ombudsmen
and the ACCC.
40 Bar-Grill, O 2012, Seduction by Contract: Law, Economics, and Psychology in Consumer
Markets, Oxford University Press.
49
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
would likely need to be continually updated, adding to
implementation costs.
Information disclosure requirements
3.108 Information disclosure requirements would involve measures to
improve the transparency of terms in standard form contracts, helping
increase the information available to small businesses offered standard
from contracts. For example, a minimum level of information could be
required through the provision of a high level summary of the key terms
in a contract, or a 'key facts sheet'. Such a document would need to be
carefully designed and targeted.41
3.109 Such initiatives could be industry-led (for example, by a
representative body) and comprise key terms likely to vary across
industries. They could also be imposed by regulation, similar to the
disclosure regimes already adopted by a range of customer contexts,
including for food nutrition and home loans.42
Impact Analysis
3.110 Similar to information campaigns, an effective disclosure
requirement should make it easier for small businesses to identify unfair
terms. It would not impact upon the 'sanctity of contract' and may
facilitate greater competition in standard form contracts due to a higher
level of awareness. In turn, this could lead to improved quality and
increased variety of terms.43
3.111 However, it too risks not addressing the identified problem as
even if all the necessary information is made available, small businesses
may not have the resources to absorb it or may disregard its value,
particularly for low-value transactions.
• In its submission, the Law Council of Australia SME
Committee suggested that: 'Information disclosure
41 Research suggests disclosure requirements are likely to be more effective when they take
into consideration a customer's tendency to think in certain ways (cognitive biases). See
Marotta-Wurgler, F 2010, Does Disclosure Matter?, New York University School of Law,
page 9.
42 For example, the National Consumer Credit Protection Amendment (Home Loans and
Credit Cards) Act 2011 (Cth) requires lenders to provide consumers with personalised Key
Facts Sheets for home loans.
43 Disclosure regulation has been criticised as ineffective due to a belief that disclosure is
unlikely to affect purchasing behaviour, either because most consumers will still not read or
because they will not understand terms.
50
Regulation impact statement
requirements are unlikely to be an adequate response to
[Unfair Contract Terms] in small business
contracts ... because there is no guarantee that information
disclosure requirements will be read by time-poor small
business operators. In addition, product and service
disclosure statements have a tendency over time to become
just as lengthy, convoluted and complex as the contracts
which they are seeking to explain.'44
3.112 Even where small businesses are able to identify unfair contract
terms, they may lack the bargaining power to effectively negotiate terms
and if they agree to the contract, may have no protection against its unfair
terms. Also, they may continue to underestimate the value of less salient
features of contracts, including the costs associated with low probability
risks.
3.113 Lastly, whether disclosure obligations are imposed by regulation
or are industry-led, they can impose compliance costs on businesses who
offer standard form contracts.
Conclusion
3.114 While a range of light touch, industry self-regulation or
non-regulatory measures are available, their effectiveness in addressing
the identified problem and adequately supporting the stated policy
objective is limited, whilst having the potential to impose compliance
costs on business.
Option 3 -- Extend unfair contract term protections to small businesses
(preferred option)
3.115 Extending the consumer unfair contract term protections to
small businesses would involve a legislative amendment to the ACL and
the ASIC Act. This would render void a term in a standard form contract
offered to a small business that a court deems unfair.45 This would give
direct effect to the Commonwealth Government's policy commitment and
CAF's agreement to explore unfair contract term protections for small
business.
44 See page 9.
45 As outlined in Attachment B: Consumer unfair contract terms protections in the Australian
Consumer Law, the ACL currently provides unfair contract terms protection for standard
form consumer contracts.
51
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
3.116 A legislative protection against unfair contract terms is expected
to bring the greatest net benefit and is the preferred option.
Scope of legislative protections
3.117 As outlined in the public consultation paper Extending Unfair
Contract Term Protections to Small Businesses46 there are a number of
issues to consider when designing the protections:
• What measure should be used to define a small business
transaction?
• Should any industries be exempt from the protections?
• Should protections cover both the acquisition and supply of
goods and services?
• Should protections cover small business to small business
contracts?
Defining a small business transaction
3.118 Several options for defining small business transactions were
raised in the consultation with no clear consensus on the best approach
(see Consultation section). The two approaches most commonly referred
to were a business size threshold and a transaction value threshold.
A business size threshold
3.119 A business size threshold would be used to limit protections to
those businesses considered most vulnerable to unfair contract terms
('inclusive' approach). This approach recognises that in general, as the
size of a business increases so does its resources and bargaining power.47
3.120 As was found in the consultation process, small businesses are
more likely than larger businesses to lack the resources and bargaining
power to review contracts for unfair terms. A small business definition
provides a clear and simple proxy for these businesses.
46 The Treasury and Consumer Affairs Australia and New Zealand, May 2014, Extending
Unfair Contract Term Protections to Small Businesses: Consultation Paper,
.
47 For example, a desire to maintain customer loyalty is more likely to discourage enforcement
of unfair terms against medium and large businesses.
52
Regulation impact statement
3.121 The term 'small business' is commonly defined using an
employee headcount. This provides a proxy as to business size, including
the extent of human resources capacity within the business.
3.122 For instance, the Australian Bureau of Statistics (ABS) defines a
small business as any business with less than 20 employees, the ASIC Act
defines a small business as any business having less than 20 employees
(with an exception of less than 100 employees for manufacturing
businesses), and the Fair Work Act 2009 (Cth) defines a small business as
any business with fewer than 15 employees.48
• An alternative definition of small business considers annual
business turnover. For instance, the Australian Tax Office
defines a small business as a business with an annual
turnover (excluding GST) less than $2 million. A business
turnover definition is not preferred as it is a less clear
indicator of human resources capacity and could exclude
small businesses in low margin and high turnover sectors
(for example, petrol retailers).
3.123 It is possible that using a headcount approach for characterising
a business as a small business may cause uncertainty, particularly where a
party may not, on face value, be able to determine if a party they are
contracting with is a small business. Nonetheless, the consultation
indicated that this would not be a significant issue given that businesses
who offer standard form contracts generally offer the same standard form
contract to all businesses with whom they contract, regardless of business
size. This suggests that the uncertainty may only arise at the time a
business seeks to enforce the unfair terms, and that the onus would be on
the small business to demonstrate they were a small business at the time
they agreed to the contract, and are therefore covered by the protection
they are seeking to enforce.49 There will also be a requirement on
regulators to establish whether a business meets the definition.
3.124 One drawback of using a small business definition is it may
exclude some businesses who are also vulnerable to unfair terms but who
just fall outside the threshold. An alternative is to exclude larger
businesses that are well-resourced and have sufficient bargaining power
from the coverage of the protection ('by exclusion' approach).
48 The ABS conducted research on small business definitions in 1999. It examined the
accuracy and coverage of numerous definitions including turnover and employee count. The
report is available at .
49 It will therefore be important to ensure that small businesses are well educated of their rights
under unfair contract term protections.
53
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
• For example, publicly-listed companies, large proprietary
companies, and their subsidiaries could be excluded from the
protections.
3.125 Although this approach would reduce the risk of excluding
vulnerable businesses from the protections, it would mean that a number
of well-resourced medium-sized companies would be covered by the
protections.
3.126 It is therefore recommended that the definition of small business
adopted by the ABS (less than 20 employees) be used, given that it is a
commonly used headcount measure and has been found by the ABS to
provide a good proxy of small businesses.
3.127 When using an employee headcount, consideration must be
given to the point at which it is measured, the time period it is calculated
and how to account for factors such as seasonal variation, part-time and
casual employment.50 For example, to account for seasonal variations an
annual measure may need to be used (that is, calendar or financial year).
3.128 Another approach which may account for some of these factors,
used in the Fair Work Act 2009 (Cth), is to measure the number of
employees who are employed on a 'regular and systematic basis'. This
would mean that only casual employees that are employed on a regular
and systematic basis, as opposed to a seasonal roster, would be counted.
A transaction value threshold
3.129 A transaction value threshold could also be used to limit the
scope of the protections to maintain the onus on businesses to take
reasonable steps to protect their interests. To achieve this, a threshold
would be set at a value above which it would be considered reasonable for
a business to undertake due diligence by, for example, seeking legal
advice.
• Some stakeholders suggested that small businesses often
have more bargaining power than they realise (see Law
Council of Australia SME Committee Submission) and small
businesses should be seeking legal advice for these more
substantial transactions.
50 Employee numbers can fluctuate (e.g. seasonal businesses, start-ups) and can change
depending on calculation methods (e.g. based on last financial year/calendar year, at the
point of contracting or at the point of enforcing rights).
54
Regulation impact statement
• On the other hand, some stakeholders had concerns with
using a transaction threshold, suggesting that small
businesses should be protected for high-value transactions
where the consequences of an unfair term can be significant
and small businesses have limited bargaining power. Further,
it was suggested that regardless of transaction size, some
small businesses may lack the resources to acquire the
necessary level of legal advice.
3.130 Small businesses have a number of similarities to consumers in
that they often lack the resources and bargaining power to adequately
review and negotiate contracts for low-value day-to-day transactions.
However, unlike consumers, small businesses are also engaging in
high-value commercial transactions that are fundamental to their business,
where it may be reasonable to expect that they undertake appropriate due
diligence.
3.131 Providing a protection against unfair terms for small businesses
engaging in such high-value contracts may reduce the possibilities
available to small businesses. Specifically, small businesses are often
offered contracts that contain terms which allow for a lower-priced
contract, and if these terms are removed then the cost for small businesses
under these types of contracts may increase. Some small businesses may
prefer to take on more risk in exchange for a lower-priced contract.
• The Productivity Commission's 2008 Inquiry Report, Review
of Australia's Consumer Policy Framework, notes that:
'barring specific terms alters the complex balance of the
contractual bargain, thus affecting profits and placing upward
pressure on prices. For instance, a reduced capacity for
businesses to impose some contingent charges on consumers,
such as certain termination fees, would lead to recovery
through higher upfront charge'.51
• In their submission, the Australian Corporate Lawyers
Association notes:
- ' ... a business may elect to accept a standard form
contract that purportedly has onerous terms, not because it
does not have the capability or resources to protect itself, but
because there is a commercial advantage to doing so - this
could be first mover advantage, the low risk not warranting
51 See page 155.
55
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
delaying the transaction or the risk being compensated for
through better commercial terms such as pricing.
• The more prescriptive the reforms, the greater the risk that
the inclusion of a term that is commercially reasonable for
the particular circumstances, may be inadvertently
prevented.'52
3.132 Such an approach would support time-poor small businesses
entering into contracts for day-to-day transactions, while ensuring they do
their due diligence when entering into big contracts that underpin their
business model.
3.133 Based on findings from the consultation process, a transaction
threshold of $100,000 for contracts of 12 months or less in duration and
$250,000 for contracts of more than 12 months in duration is
recommended (see Box 1).
• A two-tiered transaction value threshold is recommended to
account for multi-year contracts. This is expected to capture a
large proportion of day-to-day small business contracts (only
12 per cent of small business survey respondents reported
they were offered contracts of more than $250,000).
52 See page 6.
56
Regulation impact statement
Box 1: Setting a transaction value
Two factors are relevant to determining the level of a transaction value threshold:
• the point at which it would be reasonable to expect that a business seek legal
advice before entering into a contract (appropriate due diligence); and
• where small businesses are clearly more likely than medium and large
businesses to enter into standard form contracts under this threshold.
Some stakeholders indicated support for using a transaction value threshold to
encourage appropriate due diligence.53
• For example, the Law Council of Australia's Competition and Consumer
Committee recommended a threshold 'slightly more than the existing $40,000
[for consumer guarantees], and ... closer to a $100,000 threshold'. The
Committee suggested that this threshold was appropriate given 'the majority
of standard form contracts are generally for transactions which occur
frequently, don't require parties to give extensive thought to negotiating every
term of the contract and are for a lower dollar value.'54
• For low value contracts, the cost of legal advice can represent a
disproportionately large share of the total value, with legal costs for reviewing
contracts up to $100,000 typically ranging from $1,000 to $4,000 (depending
on the jurisdiction and transaction value).55
Feedback from the consultation suggested a threshold of $100,000 would capture
most small business transactions. 56
• Only 22 per cent of small business survey respondents indicated that they
were offered contracts valued more than $100,000. Of the small businesses
who reported that they had experienced an unfair term in the past 12 months,
around 80 per cent indicated that that the value of the contract in question was
less than $100,000.
• Such a threshold is anticipated to cover most small business purchases of
consumption goods and services57, small to medium acquisitions and supplies
of goods and services, most independent contracting, some business loans and
some retail tenancy and franchise agreements.
53 Most stakeholders did not raise the issue of a transaction value in their submissions, though
the issue was raised during stakeholder meetings.
54 The Committee also suggested 'a higher threshold will require companies to consider the
operation of the [unfair contract terms] regime for transactions where companies should
really be receiving independent legal advice rather than relying on the operation of the
[unfair contract terms] regime to protect them and their rights.' See the submission by the
Law Council of Australia Competition and Consumer Committee.
55 Based on information provided by the Law Council of Australia.
56 Note: Most submissions that provided examples of unfair contract terms involving small
businesses did not include a transaction value. Where they were included a significant
proportion of these were less than $250,000.
57 Such as telecommunications, office supplies, utilities, cleaning, waste management,
advertising, IT services, general banking services, insurance, motor vehicle purchase and
equipment higher.
57
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
Box 1: Setting a transaction value (continued)
However, the consultation also indicated that some small business transactions
involve multi-year contracts that can significantly exceed $100,000 (for example,
retail tenancy agreements and loan agreements). To capture these without setting
a much higher transaction threshold for all contracts, a threshold of $250,000 for
contracts longer than 12 months would be appropriate.
• Only 12 per cent of small business survey respondents reported that they were
offered standard form contracts valued more than $250,000. By contrast,
58 per cent of medium and large businesses reported they were offered
standard form contracts worth more than $250,000.
Preferred approach
3.134 In line with the policy objective and the Commonwealth
Government's commitment to extend unfair contract term protections to
small businesses, the Commonwealth recommends that a legislative
extension cover small businesses engaging in low-value contracts, by
including a small business definition based on a business size threshold
and applying a transaction value threshold.
3.135 The business size threshold would be used to limit protections to
smaller businesses and the transaction threshold would be used to limit the
scope of the protections to lower-valued contracts.
3.136 The Commonwealth considers that this approach achieves an
appropriate balance between protecting those businesses most likely to
lack sufficient resources and bargaining power with regard to unfair
terms, while preserving contractual freedom and certainty and
encouraging businesses to take reasonable steps to protect their interests.
Industry coverage
3.137 A key design question is whether the unfair contract term
protections should apply to small businesses across the entire economy,
including in industries that have implemented self-regulation.
3.138 In the consultation, a number of stakeholders suggested that
certain sectors be exempt from the unfair contract term protections,
arguing that they are already protected by existing industry mechanisms,58
and an exemption would help to minimise compliance costs.
58 These sectors include: franchising, retail tenancies, domestic/residential building contracts,
direct selling, and supply agreements with insurers.
58
Regulation impact statement
3.139 To ensure that the protections enhance rather than impede or
duplicate existing mechanisms, it is recommended that the legislative
extension includes a regulation-making power to allow the
Commonwealth Minister to exempt the application of the unfair contract
term protections for small businesses, where an industry-specific
legislation or regulation is deemed enforceable and equivalent.
• Under this test, most existing industry mechanisms, with the
possible exception of the Independent Contractors Act 2006
(Cth) and the Motor Vehicle Dealers and Repairers Act 2013
(NSW), do not provide an adequate level of protection so
would not be deemed equivalent (see Attachment C: Existing
laws and regulations).
• Non-enforceable mechanisms, such as voluntary industry
codes that are not legislated, are not intended to be captured
by this power.
Financial goods and services
3.140 The consumer unfair contract term protections also apply to
financial products and services as legislated in Subdivision BA of
Division 2 of the ASIC Act. Whether the proposed extension to small
businesses should also cover financial products and services was raised in
the discussion paper. During the consultation process, some stakeholders,
including the Australian Bankers' Association, expressed the view that
existing measures are already in place to provide small businesses with
protections against unfair contract terms, citing the Code of Banking
Practice 2013 which covers small business contracts for the provision of
financial products and services as an example.
3.141 However, the overriding view of stakeholders was that the
existing mechanisms do not provide substantive protections (see
Attachment C: Existing laws and regulations). Examples of practices
where protections against unfair contract terms for small businesses can
be inadequate were raised in a confidential submission (see Consultation:
Examples of unfair contract terms).
3.142 The Australian Government's preferred approach is to include
financial products and services in the protections through an amendment
to the ASIC Act.
59
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
3.143 In its final report released in December 2014, the Financial
System Inquiry endorsed the Government's process to extend unfair
contract term protections to small businesses. The Inquiry considered that
the protections could improve broader contracting practices and the fair
exercise of rights pursuant to non-monetary default covenants.59
Other design issues
3.144 A range of other design issues were raised in the consultation.
3.145 A key issue of scope is whether the protections should cover
both small business acquisition and supply of goods and services, and
small business-to-small business contracts. Given the evidence from the
submissions that unfair contract terms occur in all of these circumstances
it is recommended that the protections apply to all of these contracts.
3.146 Given that the proposed legislative intervention is to extend the
current framework for consumer unfair contract term protections to small
businesses, a number of stakeholders raised concerns with the clarity of
current concepts such as 'unfair', 'standard form contract' and
'transparency'. These stakeholders submitted that these concepts are
difficult to interpret in their current form and may cause uncertainty in
commercial dealings. 60
• These concepts were carefully considered during the design
of the consumer protections, where it was recognised that
they are subjective and hence appropriate for a court to
determine.
• The upcoming ACL Implementation Review will provide an
opportunity to review these concepts.61
Impact analysis
3.147 The proposed legislative extension seeks to address the
identified problem by voiding unfair contract terms in low-value standard
form contracts agreed to by small businesses. This will reduce the
incentive for businesses offering standard form contracts to include unfair
59 See Recommendation 34 of The Financial System Inquiry Final Report, November 2014,
.
60 For example in relation to the criteria for 'unfair', some stakeholders queried what
constituted a legitimate business interest. Others were concerned that it was not clear
whether a contract could be classified as standard form if only some and not all of the terms
were negotiated.
61 This review is expected to commence in 2016.
60
Regulation impact statement
terms, which is expected to reduce their overall use within the broader
Australian economy.
Decreased use of unfair contract terms
3.148 As was the case with introducing consumer unfair contract term
protections, some businesses may review their contracts for unfair terms
and make any changes necessary to ensure they comply with the new
protections. This is expected to have positive flow-on effects to
contracting practices throughout the economy.62
3.149 A range of industry bodies (including those from the legal
profession), small business commissioners and industry ombudsman are
expected to support businesses and legal professionals to comply with the
new protections. Further, the ACCC will initially undertake an education
and compliance program before moving to a more enforcement-focused
approach to dealing with unfair contract terms (see Implementation and
evaluation section).
• This was the approach taken following implementation of the
consumer unfair contract term protections and 'achieved
significant improvements to standard form consumer
contracts in a number of industries'.63
3.150 The introduction of unfair contract term protections for small
business is expected to provide small businesses with the confidence to
resolve issues directly with the party offering the standard form contract,
as well as having complaints resolved through formal channels (for
example, through the ACCC, ASIC, state and territory fair trading bodies,
small business commissioners and various dispute resolution schemes).
3.151 For example, under the consumer unfair contract term
protections, the ACCC has resolved the vast majority of complaints
through informal and administrative means, with businesses amending or
removing clauses considered problematic.64
62 For example changes to industry standard contracts are expected to flow through to a
significant number of contracts in the economy as they are heavily used in a number of
industries, such as construction.
63 ACCC 2013, Unfair Contract Terms, Industry review outcomes, page 5. Particularly
significant changes were achieved in relation to standard form contracts of major airlines,
with 79 per cent of problematic terms identified by the ACCC amended or deleted as a
result of the review.
64 As at 30 June 2014 ASIC had received over 300 reports of misconduct in relation to unfair
contract terms since the commencement of these protections on 1 July 2010 from the public.
61
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
• To date, a total of five matters proceeded to an in-depth
investigation, either due to the egregious nature of the breach
or due to reluctance on the part of the business to reach an
administrative resolution. As a result, the ACCC has issued
one warning letter and obtained one court order by consent.65
• The ACCC has also recently taken action regarding
misleading contract terms and unfair conduct, against a car
hire firm.66
3.152 A number of private actions have also been pursued via the
protections of the ACL and, prior to the ACL, the consumer unfair
contract terms protection of the fair trading law in Victoria. For example,
in 2011 the New South Wales Civil and Administrative Tribunal found a
term of an airline ticket to be unfair and ordered a full refund.67
3.153 As outlined in The Problem section, reducing the incidence of
unfair contract terms is expected to provide a significant benefit to the
Australian economy, with around two million small businesses68 in
Australia (97 per cent of all businesses) engaging in, on average, several
standard form contracts a year.69 This is also expected to reduce business
detriment as a reduction in the use of unfair contract terms may also lead
to:
• a more efficient allocation of risk in contracting, as unfair
contract terms can shift the risks onto the party least able to
manage them;
• increased small business confidence when transacting in
standard form contracts, which in turn should encourage their
engagement in economic activity; and
• it will encourage a stronger adherence to the ethical principle
of fairness in contractual dealings.
65 On 30 July 2013 the Federal Court declared by consent that four terms in Bytecard's
standard form consumer contract were unfair. This was the ACCC's first action based
exclusively on the unfair contract terms provisions of the ACL.
66 See .
67 Kucharski v Air Pacific Ltd (General) 2011 NSWCTTT 555.
68 Small business is defined as a business with fewer than 20 employees. See ABS Cat no.
8165.0.
69 Respondents to the survey reported a median of five standard form contracts being offered
in the previous 12 months.
62
Regulation impact statement
Unintended consequences
3.154 During the consultation some stakeholders criticised any
intervention to protect against unfair contract terms as interfering with the
freedom of contract. For example, some stakeholders suggested that it
could limit their flexibility to offer particular terms and conditions.
3.155 There was also the suggestion that a legislative extension of the
consumer protections to small businesses, particularly where it is not
straightforward to determine whether a business is covered, could
introduce significant uncertainty and compliance costs in business
dealings.
3.156 Two possible consequences of introducing a legislative
extension are an increase in the price and a reduction in the supply, of
related goods and services. For example, this was raised with respect to
financial services and products, where some stakeholders suggested that
the protections might increase the cost and reduce access to finance.
3.157 This argument suggests that the inability to include unfair terms
in standard form contracts might limit the degree to which a business can
assign certain risks to the other party in return for a lower contract price,
and that any compliance cost associated with the intervention could be
passed onto small businesses through a higher contract price. Another
possibility is that suppliers may respond by limiting their supply (or
acquisition) of particular goods or services to small businesses, or moving
to negotiated contracts for some transactions.
3.158 The consumer unfair contract term protections were carefully
designed to reduce such unintended consequences and minimise
interference with freedom of contract. For example, terms which are
considered reasonably necessary to protect legitimate business interests
cannot be considered unfair. In line with this, the experience with
introducing unfair contract term protections for consumers was that such
consequences have not been significant, including in financial product and
service contracts. Standard form contracts continue to be widely used and
there is no evidence to suggest that there was a significant impact on the
price and supply of related goods and services.
3.159 While some financial lenders have raised the additional
complexity involved in business lending compared to consumer lending,
stakeholders were unable to quantify the cost of this or the impact on
availability of credit to small businesses.
3.160 Further, the recommended design of a legislative extension of
unfair contract term protections to small business seeks to reduce
interference in the sanctity of the contract by using a transaction value
63
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
threshold to encourage small businesses to conduct due diligence for more
significant contracts. The intention of this threshold is to provide
protections for small businesses engaging in day-to-day transactions and
not contracts crucial to their business model.
3.161 Another concern raised by some stakeholders was the potential
for the protections to result in significant litigation. Evidence from the
introduction of unfair contract term provisions for consumers in Australia
and the UK suggests that such laws do not result in significant increases in
litigation or difficulty in enforcing contracts.70 As raised earlier, the
ACCC have resolved the majority of consumer complaints regarding
unfair contract terms through informal and administrative means and not
through litigation.
3.162 Alternative dispute resolution processes provide an avenue for
consumers and small businesses to resolve disputes around unfair contract
terms themselves.
Compliance costs
3.163 There are three types of transitional costs that businesses could
incur under this option.
3.164 It is anticipated that all Australian businesses (2.14 million)
would incur familiarisation costs from the legislative change, but these
costs would be relatively small given that this option would extend
existing unfair contract term protections and not create a new prohibition
or framework.
• As with the consumer protections, the ACCC would
undertake an information campaign to inform businesses of
the changes and provide detailed guidance material.
3.165 Businesses offering standard form contracts may incur costs to
ensure compliance with the legislation, as they may need to review and if
necessary amend contract terms. This compliance cost is expected to be
primarily accrued during the first 12 months following the introduction of
the protections (the transitional stage).
• Businesses are expected to apply one of several approaches:
review (and amend) themselves; seek legal advice to review
70 Productivity Commission, 2008, Review of Australia's Consumer Policy Framework, vol. 1,
page 34.
64
Regulation impact statement
(and amend); or take no action based on a risk assessment
that it is not cost effective to review.71
• It is anticipated that those businesses who offer more
complex standard form contracts are more likely to review
their contracts, and that the majority of compliance costs
would be incurred by medium and large businesses who
generally offer more complex and/or different types of
contracts. During the consultation it was suggested that larger
businesses are the most likely to seek legal advice to ensure
compliance.72
• It is anticipated that small businesses will not incur
significant compliance costs. Most do not offer standard form
contracts and those that do generally offer only one or two
contracts with simple terms and conditions.73 Those who
offer more complex contracts may investigate whether they
can review terms through an industry body that provides
businesses with an industry template, or choose to adopt
terms used by a competitor.74
• It is also assumed that businesses will not incur ongoing
costs, as the cost of compliance for new contracts will be a
'business as usual' cost incurred through their routine update
of standard from contracts.
• The ACCC will undertake an education and compliance
program to support businesses with the transition.75
71 As a legislative option would make unfair contract terms void and not prohibit the existence
of unfair contract terms outright some businesses may decide not to review terms, or alter
existing contracts, given the legislation would not penalise a business for mere inclusion of
the term. Further, some businesses would have already reviewed and amended terms in
contracts being offered to small businesses following the implementation of the consumer
unfair contract terms protections.
72 In the consultation survey, the majority of respondents who experienced unfair terms in
contracts suggested that the other party was a large business.
73 For example only a quarter of small business respondents to the survey offered standard
form contracts.
74 Some smaller businesses can base their terms and conditions on industry competitors and as
a result any changes to their competitor's terms will flow through.
75 While the ACCC will provide general guidance to those subject to the new provisions, it
will develop more detailed guidance for those sectors where small business concerns about
unfair contract terms are most prevalent. This is consistent with the ACCC's approach to the
introduction of the consumer ACL unfair contract terms provisions in which it worked with
65
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
• The availability of an exemption for equivalent enforceable
legislation and regulation will ensure that compliance costs
are not incurred in those industries that provide equivalent
protections.
3.166 The legislative extension may also introduce costs associated
with a change in business processes (the amount of which is likely to
vary significantly from business-to-business). For example, it may require
modification of: processes and systems; rules and operating practices; and
staff education and training.
• It is expected that these costs will be small for most
businesses as the information incorporated into business
systems is often related to the key upfront characteristics of
the product being sold and not the terms and conditions
embedded in the fine print of the contract. Costs may be
more substantial where businesses have complex systems and
significant changes to processes and systems are required in
order to comply.
Administrative costs for government
3.167 The ACCC was provided $1.4 million in the 2014-15 Budget to
support implementation of a legislative extension.
• It is expected that this would utilise existing implementation
and enforcement architecture regarding the unfair contract
term protections for consumers, and that ACCC guidance for
small businesses could draw from previous guidance
provided to consumers.
3.168 The enforcement of unfair contract term protections would
require regulatory resources, including use of the court system. In line
with the experience with the consumer protections it is expected that the
majority of complaints will be resolved administratively and not through
litigation.
Calculation of compliance burden
3.169 A detailed estimation of the compliance burden has been
undertaken using the Business Cost Calculator from the Office of Best
Practice Regulation. Consistent with regulatory impact analysis
requirements, quantification has only been undertaken for those changes
businesses to remove or change unfair terms in standard form contracts and address
identified issues, rather than moving immediately to an enforcement approach.
66
Regulation impact statement
expected to result in more than a nominal or minor increase or decrease in
compliance costs. Also, quantification has only been made for the one-off
costs associated with seeking legal advice to ensure terms are compliant
and system changes for very large businesses. The framework for
calculating these costs is outlined in Box 2.
3.170 As raised in Box 2 below, aggregate compliance costs depend on
how many firms choose to review and amend their contracts. This
calculation assumes the following:
• a small business definition of fewer than 20 employees and a
transaction value threshold of $100,000 (or $250,000 for
contracts with a duration of more than 12 months);
• larger businesses who offer complex and/or many different
types of standard form contracts may seek legal advice to
review and some will amend their contracts, while smaller
businesses are unlikely to review their contracts and those
that do will utilise low-cost mechanisms;
• some large corporates, who offer many standard form
contracts, may incur additional costs if they amend contract
terms and need to modify associated business systems; and
• businesses who decide to review (and amend) their standard
form contracts will likely do so within the first 12 months of
implementation.
3.171 Based on the costs that can be quantified, it is expected that
there will be a net annual compliance burden of around $50 million in the
first year, with no ongoing compliance costs. This equates to an average
annual compliance cost (over 10 years) of around $5 million.
3.172 As the decision will be made jointly by the Commonwealth,
states and territories, one-ninth of the total regulatory costs will be
allocated to the Commonwealth. As a result the Commonwealth will be
allocated an average annual compliance cost (over 10 years) of around
$0.56 million (Table 2).
67
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
Table 3.2: Compliance costs
Average annual regulatory costs (from business as usual)
Change in costs Business Community Individuals Total change in cost
($ million) Organisations
Total, by sector $0.56 - - $0.56
Cost offset Business Community Individuals Total, by source
($ million) organisations
Agency -$0.56 - - -$0.56
Are all new costs offset?
Yes, costs are offset No, costs are not offset Deregulatory--no offsets required
Total (Change in costs - Cost offset) ($ million) = $0
Note: A regulatory offset has been identified from within the Treasury portfolio, relating to
the alignment of the legal frameworks for personal and corporate insolvency practitioners.
68
Regulation impact statement
Box 2: Calculating compliance costs associated with seeking legal advice to
amend and review contracts for unfair terms
Compliance costs have been calculated using the following parameters:
The number of standard form contracts that are reviewed and amended:
= a) number of businesses offering standard form contracts to small businesses x
b) number of different types of standard form contracts each business offers x c)
proportion of businesses that choose to review and amend their contracts.
a) Number of businesses offering standard form contracts to small
businesses.
This is derived using the number of businesses in the Australian economy
(2.14 million, sourced from the ABS76) and an assumption of the proportion of
businesses who offer standard form contracts based on findings from the
consultation survey:
60 per cent of large business respondents (200+ employees), 40 per cent of
medium business respondents (20-199 employees) and 20 per cent of small
business respondents
(<20 employees) indicated they issue standard form contracts.
b) Number of different types of standard form contracts each business
offers.
The consultation suggests most small businesses are likely to offer one type of
contract, medium and large businesses are likely to offer a couple of different
types of contracts, and very large businesses are likely to offer several different
types of contracts.77
c) Proportion of businesses that choose to review and amend their
contracts.
This will depend on a number of factors, including how the legislative extension
is designed. Large businesses are likely to seek legal advice while small and
medium businesses are unlikely to do so, preferring instead to rely on industry
standard templates in an attempt to minimise their compliance cost.78 Of those
firms that undertake a review of their contracts, it is likely that only some of
these firms will need to make amendments to the contracts they offer.
The cost of reviewing and amending a standard form contract will depend on the
length and complexity of the contract and whether a business has access to
in-house legal expertise. Estimates have been sourced from the Law Council of
Australia Competition and Consumer Committee.
76 See ABS Cat no. 8165.0 at 30 June 2013.
77 Consultations were held with the Law Council of Australia Competition and Consumer and
SME Committees, as well as some large corporates, such as in the banking industry. Sectors
such as banking, are an example of a sector where many different types of products are
offered and there are many different types of standard form contracts.
78 Consultations with some large corporates, who offer a significant volume of standard form
contracts indicate that they are likely to review a large proportion of their contracts and may
require changes to systems if terms are amended.
69
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
Box 2: Calculating compliance costs associated with seeking legal advice to
amend and review contracts for unfair terms (continued)
• In general, more simple contracts with a value of up to $100,000 (around one
to six pages) could cost between $3,000-10,000 to review and amend, while
more complex contracts valued over $100,000 (around six to 20 pages)
could cost slightly more. 79
• The consultation revealed that the cost of using in-house legal expertise is
likely to be much lower and is in some cases considered a 'business as usual'
cost.
Conclusion
3.173 For the reasons outlined above, it is expected that the benefits of
a legislative extension of the consumer unfair contract term protections to
small businesses will significantly outweigh any costs. By allowing the
voiding of unfair terms in small business standard form contracts, the
incentive to include and enforce them will be significantly reduced. This
will reduce small business detriment arising from unfair terms and provide
for a more efficient allocation of contract risk. Ultimately, it is expected
that this option will have a significant positive impact on the wellbeing
and confidence of the more than two million small businesses in Australia,
most of which transact through standard form contracts. It will also
support the ethical concept of fairness in contractual dealings.
3.174 Although businesses may incur compliance costs as a result of
the reform, these are expected to be modest and mainly incurred by large
businesses who offer many and/or complex standard form contracts.
Option 4 -- Legislation to require standard form contracts with small
businesses to be negotiated on request
3.175 This option would involve legislating to require businesses to
negotiate on request the terms of all standard form contracts they offer to
small businesses.
3.176 Most stakeholders in the consultation did not comment on this
option, with those stakeholders who did comment suggesting it would
impose significant compliance costs on all contracting parties.
79 The Treasury undertook targeted consultations with the Law Council of Australia
Competition and Consumer Committee to obtain rough estimates of legal costs. These
estimates include the cost of reviewing contracts and, if required, the cost of assessing
whether a term constitutes a 'legitimate business interest' and the cost of amending terms.
Note that legal costs can vary across jurisdictions and type of contract.
70
Regulation impact statement
Impact analysis
3.177 Under this option, a small business could request that a standard
form contract be negotiated if they identify what they consider to be an
unfair term. As a consequence, the contract may no longer be considered a
'standard form contract' as it has been negotiated and not offered on a
'take it or leave it' basis.
3.178 This option is unlikely to address the identified problem, as it
requires a small business to be able to identify an unfair contract term and
be willing to incur the cost of renegotiating the contract. This cost may be
significant and/or disproportionate for low-value contracts. In addition,
the requirement to negotiate -with no protections against unfair terms-
may be of little practical value as the small business may lack bargaining
power to successfully negotiate meaningful changes to the contract.
3.179 The costs associated with requiring contracts to be negotiated on
request could also preclude the significant efficiency benefits that
standard form contracts offer -- it may be costly and impractical for
businesses to negotiate contracts in some circumstances, particularly for
low-value transactions and those repeated with a large number of parties.
3.180 Given that this option does not address the information failure
and bargaining power issues surrounding unfair terms of standard form
contracts, and imposes substantial additional transaction costs, it is not
considered further.
Consultation
3.181 The Commonwealth Treasury on behalf of Consumer Affairs
Australia and New Zealand, conducted an extensive public consultation
process from 23 May 2014 to 1 August 2014 which included releasing a
consultation paper,80 Extending Unfair Contract Term Protections to
Small Businesses.81 The objective of the consultation was to gather
additional evidence on the extent of the problem and the available policy
options.
80 .
81 Consultation took place in line with a strategy based on consultation principles
recommended by the Office of Best Practice Regulation to ensure maximum input was
received from the small and large business communities, and other interested stakeholders
(as outlined in the consultation paper at pages 41-43).
71
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
3.182 An online business survey was also released as part of this
process (see Attachment A: Survey results) to better understand business'
experiences with contracts and unfair terms. Stakeholders were also
invited to lodge formal submissions and provide brief comments on the
Commonwealth Treasury website.
3.183 There were 85 submissions received during the consultation
(including 20 confidential submissions)82 and 287 responses to the online
business survey, with respondents from a range of business sizes.
3.184 The Commonwealth Treasury also met with a number of
stakeholders following this consultation process to discuss issues raised in
their submissions and explore additional questions that had arisen.
Discussions were also held with some stakeholders that did not make a
formal submission to the consultation process.
3.185 Information received during these consultations has been used to
improve the understanding of the policy problem, fine-tune the scope of
policy options and develop a targeted and effective implementation plan.
Reflecting this, there are references to specific findings from the
consultation throughout this document.
Key findings
3.186 Feedback from the survey, submissions and stakeholder
meetings indicate that concerns with unfair terms in small business
contracts span a wide range of industries including those which some
stakeholders argue already have adequate protections.83
• A number of examples of unfair terms were presented in
stakeholder submissions and the online business survey (see
Attachment A: Survey results). The online survey also shed
light on why smaller businesses are more likely to be
vulnerable to unfair contract terms.
3.187 In general, stakeholders were not supportive of maintaining the
status quo (Option 1) with the majority of submissions supportive of
82 All non-confidential submissions were published on the Treasury website, together with the
consultation RIS. These can be found at
.
83 Industries where unfair terms were reported in stakeholder submissions included:
telecommunications, financial products and services, franchising, retail tenancy, waste
management, architecture, independent contractors and advertising.
72
Regulation impact statement
extending the consumer unfair contract term protections to small
businesses (Option 3).
• A few stakeholders preferred a non-regulatory response
(Option 2), arguing that a legislative extension would impose
compliance costs and increase uncertainty in contracting with
small businesses.84
• Most stakeholders did not provide views on Option 4, to
introduce legislation to require standard form contracts with
small businesses to be negotiated on request, though those
that did were not supportive of implementing this option.
One stakeholder suggested it would be 'unworkable' and
another suggested it would involve 'substantial costs'.85
3.188 There were a number of stakeholders who suggested certain
sectors should be exempt from a legislative extension, including
franchising, retail tenancies, financial products and services,
domestic/residential building contracts, direct selling, and supply
agreements with insurers. A number of stakeholders raised concerns with
providing sectoral exemptions, with some arguing that this could increase
regulatory uncertainty and complexity.86
Examples of unfair contract terms
3.189 Stakeholder submissions raised specific concerns about unfair
terms in small business contracts across a wide range of industries, for
example:
• Franchisees raised concerns about the inclusion of clauses
permitting: unilateral termination; compulsory acquisition of
franchises at less than market rate; liquidated damages that
do not reflect actual losses in franchise agreements; and a
franchisor to unilaterally vary the operation and procedures
manual and change a franchisee's obligations.87
• For retail tenancy agreements, concerns were raised with
onerous and non-transparent terms and conditions contained
in shopping centre 'fit out' manuals.
84 For example, see submissions from Macpherson and Kelley Lawyers and Ai Group.
85 For example, see submissions by the Shopping Centre Council of Australia (page 14) and
Dr J Buchan (page 6), respectively.
86 For example, see submissions by the Australian Newsagents' Federation and Baker and
McKenzie.
87 These examples were raised in a number of confidential submissions.
73
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
- For example, Lease1 suggested that lessors may
impose unreasonable ancillary terms such as refurbishment
requirements as part of these fit out guides.
• Two forms of unfair practices were raised in financial
services and credit contracts targeting small businesses in
urgent need of finance:88
- 'fee farming', where a small business that is seeking a
loan is liable to pay a brokerage fee even if the broker's
conduct contributed to the small business failing to obtain the
loan; and
- 'equity stripping', where a small business that is
already in default has its debt refinanced and is then liable to
pay excessive interest and default fees.
• In the telecommunications industry, concerns were raised
with terms permitting suppliers to unilaterally vary the price
or included value (for example, the available data or calls),
automatic renewal terms and terms that permit the supplier to
avoid or limit their obligations.89
• A number of contract terms in the waste management
sector were raised by the Victorian Small Business
Commissioner. These included terms which could limit a
party's right to sue, automatic renewal terms, terms
permitting unilateral variation or disparity in the rights to
terminate a contract, and terms that allow one party to limit
or avoid their obligations.
• The Australian Institute of Architects raised concerns with
architecture contracts requiring insurance to cover unlimited
liability, clauses providing for excessive liquidated damages
and the use of 'contingency sums' to cover design errors and
discrepancies.
• Some stakeholders noted that contracts for online
advertising services often provide for automatic renewal
88 These examples were raised in a confidential submission.
89 See the submission by the Telecommunications Industry Ombudsman. The
Telecommunications Industry Ombudsman suggested that these terms will not always be
unfair. Unilateral variation clauses can permit suppliers to flexibly reflect changes in their
cost structures over time rather than having to anticipate these in advance, and automatic
renewal can provide continuity of service to customers.
74
Regulation impact statement
with onerous and/or excessive notice requirements, which
can lock customers in, particularly as there are often
significant fees for early termination.90
Feedback on the design of a legislative extension
3.190 As was raised in the consultation paper91 there are a number of
different parameters that need to be considered when designing a
legislative extension. Stakeholder feedback on these parameters is
outlined below.
Defining small business
3.191 There was a range of views on how to define small business
transactions, reflecting different views from stakeholders on the extent to
which businesses should be protected from unfair contract terms. Some of
the options raised by stakeholders were:
• Limiting protections to contracts under a certain value
threshold. Some argued this would maintain the onus on
businesses to review contracts and seek legal or financial
advice where it is reasonable to do so. The Law Council of
Australia Competition and Consumer Committee suggested a
transaction value threshold of $100,000.
• Limiting protections using a business size threshold. Some
suggested proxies of business size could be used to limit
protections to small business, for example, using an
employee headcount or annual turnover. There was no clear
view on which measure was preferred. Alternatively, there
were a number of stakeholders who favoured an 'exclusion'
based approach, such as excluding publicly listed companies
from relying on the protections.
- Some also thought a small business definition could
introduce uncertainty and favoured a definition that was
observable to the counterparty, such as excluding publicly
listed companies or companies generally.92
90 For example, see submission by Small Business Development Corporation of Western
Australia.
91 .
92 For example, see submissions by the Australian Newsagents Federation and the New South
Wales Small Business Commissioner.
75
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
- Some stakeholders rejected a business size approach,
arguing that it would impose unnecessary compliance costs
and have unintended consequences,93 whilst others proposed
an approach based on relative size.94
• Limiting protections to small business consumption goods
and services.95 A few suggested that small businesses should
only receive protection for transactions where they act like
consumers.96 This would be consistent with the unfair
contract term provisions for small businesses being
introduced in New Zealand in 2015.
Other design issues
3.192 There were a number of other design issues considered in the
consultation, including:
• Whether to protect contracts for acquisition from small
businesses. Most submissions that considered this issue
favoured an extension that covers contracts where goods and
services are supplied to, or acquired from, small businesses.97
• Whether to protect contracts between small businesses.
Some suggested they should be covered as unfair terms can
also occur in these contracts, while those against this design
suggested it would impose unnecessary compliance costs on
small businesses.
• Whether to protect contracts for financial products and
services (by amending the ASIC Act). There were differing
views on this issue, with some suggesting that existing
industry measures already provide adequate protection98
while others suggested there are still problems with unfair
93 For example, see submission by Macpherson and Kelley Lawyers.
94 For example, see submission by the Australian Automotive Dealer Association.
95 This would involve changing the definition of a consumer contract from one for supply of
goods and services for personal or domestic household use to also include goods and
services that are of a kind ordinarily acquired for personal, domestic or household use or
consumption other than for resupply or transformation within a business.
96 For example, see submissions by New Zealand Law Society and Arnold Bloch Leibler.
97 For example, see submissions by the National Farmers' Federation and Independent
Contractors Australia.
98 For example, see the submission by the Australian Banker's Association.
76
Regulation impact statement
terms in small business contracts.99 Some noted the
complexity of these contracts and the need to design any
protection carefully, including the exclusion of sophisticated
parties.100
Feedback on concepts used in consumer unfair contract terms
protections
3.193 A number of concepts are described in the ACL's consumer
protections, including 'unfair', 'standard form contracts' and
'transparency'. Attachment B outlines the current criteria used to
determine these concepts.
3.194 While some stakeholders suggested these criteria should also
apply to any small business protections to ensure consistency, others
suggested they could be difficult to interpret and therefore introduce
uncertainty into contractual dealings.
• 'Standard form contract': Some argued the current criteria
is flexible and should be applied to the small business
protections, while others suggested it was not always clear
whether a contract could be classified as 'standard form' if
only some terms were negotiated.101
• 'Unfair' terms: Some argued it is not clear what constitutes
a 'legitimate business interest'. Another concern was whether
passing unfair terms up or down a supply chain would be
considered 'reasonably necessary' to protect a legitimate
business interest.102
• 'Transparent' terms: Some argued there should be greater
clarity as to what constitutes transparency in the context of
business-to-business contracts, particularly when external
legal advice is sought. There were also some stakeholders
that suggested that the threshold as to whether a contract is
transparent should be higher for small businesses than for
consumers, as small businesses should be more aware of their
99 For example, see the Law Council of Australia SME Committee and the Australian
Chamber of Commerce and Industry. A confidential submission was also provided with a
number of examples.
100 Given the complexity of issues relating financial product and services, the Treasury
conducted a number of additional targeted consultations with key industry participants.
101 For example, see the Law Council of Australia Competition and Consumer Committee and
Australian Corporate Lawyers Association.
102 For example, see the submission by Master Builders Australia.
77
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
legal rights and the consequences of entering into contracts,
compared with consumers.103
Feedback on the implementation of a legislative extension
3.195 Stakeholders had a number of recommendations to ensure that
the implementation of a legislative extension was effective.
• It was widely suggested that implementation should be
supported by a comprehensive education campaign.
• Transitional arrangements were raised, with some arguing
that a 12 month transition period following implementation
of any intervention would be appropriate to allow for an
update of contracts.104
• Ensuring 'access to justice' for small businesses was raised
with a number of suggestions put forward:
- The ACCC and ASIC could provide guidance material
that includes advice on: the extent of negotiation at which a
contract is no longer considered 'standard form'; the types of
terms that may be considered reasonably necessary to protect
a 'legitimate business interest'; examples of unfair contract
terms (similar to those developed for the consumer
protections); and guidance on 'transparent' terms.
- Commonwealth, state and territory small business
commissioners and dispute resolution services could help to
reinforce the protections and support access to justice.
- A role for state and territory tribunals in providing
lower cost access to justice.
3.196 Stakeholders also generally expressed positive feedback
regarding the ACCC's education and compliance efforts following
introduction of the consumer unfair contract term protections and
supported a similar approach for small business protections.
103 See the submission by the Australian Corporate Lawyers Association.
104 See the submission by the Australian Corporate Lawyers Association.
78
Regulation impact statement
Option selection
3.197 An analysis of the options for addressing the identified problem
indicates that a legislative extension of the consumer unfair contract term
protections to small businesses (Option 3) would bring the greatest net
benefit:
• Option 1 -- the status quo is not expected to address the
problem as current laws do not provide adequate protections
against unfair contract terms and market forces provide
strong incentives to use them.
• Option 2 -- light touch or non-regulatory responses could
reduce the incidence of unfair contract terms and/or improve
the availability of information, however their effectiveness in
adequately and systematically dealing with unfair terms is
limited and some have the potential to impose substantial
compliance costs.
• Option 3 (preferred) -- legislative amendment to extend the
existing consumer unfair contract term protections to small
businesses is expected to most substantially address the
identified problem. By enabling unfair contract terms to be
declared void the incentive to include and rely on them will
be significantly reduced, resulting in a more efficient
allocation of contract risk and increased small business
confidence.
• Option 4 -- legislation to require small business standard
form contracts to be negotiated on request is not expected to
address the identified problem as small businesses would still
lack the resources and bargaining power to protect against
unfair terms, and it is expected to impose substantial
compliance costs.
3.198 Consistent with this, the Commonwealth recommends designing
a legislative extension that targets those businesses considered most
vulnerable, whilst maintaining the onus on businesses to undertake due
diligence and minimising compliance costs. The Commonwealth
recommends the legislative extension:
• apply a small business size threshold of fewer than
20 employees, combined with a transaction value threshold
of $100,000 (and $250,000 for contracts with a duration of
more than 12 months) to target low-value small business
transactions; and
• allow for the exemption of enforceable and equivalent law.
79
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
Implementation and evaluation
3.199 A legislative extension (Option 3) requires an amendment of the
ACL (Schedule 2 of the Competition and Consumer Act 2010 (Cth)) to
extend the protection to the supply and acquisition of goods and services,
and to extend the protections to financial products and services, the ASIC
Act. An Exposure Draft of the proposed amendments has been prepared
and circulated for public consultation. Following this, it will be introduced
into Parliament and presented to the Federal Executive Council.
Regulations
3.200 To enable the exemption of enforceable and equivalent law from
application of the small business' unfair contract term protections, it is
proposed that the regulation-making power be legislated to specify the
circumstances under which an exemption would be granted.
3.201 To ensure a national approach, the Commonwealth Minister
would be responsible for formally exempting an enforceable and
equivalent law. This would be consistent with the approach employed in
relation to permanent product safety bans and information standards under
the ACL.105
3.202 Any exemption from the small business' unfair contract term
protections under the ACL that is likely to be considered more than a
minor or inconsequential amendment would require a vote of the parties
to the Intergovernmental Agreement for the Australian Consumer Law.
3.203 Prior to the Commonwealth Minister seeking to exempt a law, it
is recommended that a number of steps would need to be satisfied. This
may include for example:
• providing that the Minister can only grant an exemption in
relation to a regulation and legislation once he/she is satisfied
that it provides enforceable and equivalent protections; and
105 Consistent with clause 8 of the IGA, states and territories could submit proposals to the
Commonwealth for industry exemptions.
80
Regulation impact statement
• the Minister will need to be satisfied that the proposal meets
a prescribed list of criteria before granting an exemption,
such as that it is in the public interest.106
Explanatory memorandum
3.204 The Explanatory Memorandum that accompanies the bill will
provide additional information regarding its objectives and operation that
will assist in the interpretation of the legislation.107
Transitional arrangements
3.205 This law will not apply retrospectively but will apply to
contracts formed or renegotiated, and terms that are varied, after the date
on which the law comes into force. The law will come into effect
following a six month transition period, beginning the day after the law
receives Royal Assent. This will occur following the passage of the law
through the Commonwealth Parliament.
3.206 To help businesses comply with the new laws the ACCC, which
was provided $1.4 million in the 2014-15 Budget, will initially take an
education and compliance program, similar to that employed following
the introduction of the consumer protections in 2010. Following this, the
ACCC will move to a more enforcement-focused approach to dealing with
unfair contract terms.
Support to business
3.207 The effectiveness of the legislative extension in protecting small
businesses against unfair terms in standard form contracts will in part
depend on business' awareness of the protections and their willingness
and ability to comply.108
106 For example see section 25(2) of the ACL, which requires the Minister to consider the
impact on consumers and businesses, and the broader public interest, before prescribing
any additional terms as unfair under the existing consumer unfair contract terms law.
107 The Legislation Handbook outlines that Explanatory Memorandums and Second Reading
Speeches can be used 'to assist members of Parliament, officials and the public to
understand the objectives and detailed operation of the clauses of the bill'. It also
highlights that under section 15AB of the Acts Interpretation Act 1901 (Cth), extrinsic
material such as Explanatory Memorandums, may be used in interpreting a law. See
at page 38.
108 There are a number of key implementation risks: small businesses remain unaware of the
protections and do not exercise their rights; businesses are unaware of the new protections
81
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
3.208 The ACCC and ASIC will work alongside state and territory
consumer affairs agencies, small business commissioners, industry
ombudsman, industry organisations and the business community, to help
businesses transition to the new arrangements. For example, based on
experiences following the introduction of the consumer protections, the
following support may be provided:
• calling on key small business groups and industry
associations to identify examples of problematic contracts
terms;
• producing guidance material on how the new laws operate,
including examples of the types of terms that could be
considered 'unfair', and urging businesses to review their
standard form contracts; and
• identifying particularly problematic unfair terms during the
transition phase. This could involve undertaking targeted
engagement with industries, to raise any issues and
encourage compliance.109
3.209 Also, the new Commonwealth Family and Enterprise
Ombudsman and state and territory small business commissioners and
agencies could provide an important education and information role and
help to direct unfair contract term issues to the relevant bodies.
3.210 In consultations with industry, a number of bodies indicated that
they would be prepared to assist with the education of both businesses and
legal practitioners in the lead up to and following implementation.
3.211 For this legislative extension it is recommended that a review be
undertaken within five years of it coming into force.
and the need to comply and even if businesses are aware of the protections they lack the
resources to comply.
109 The ACCC secured significant impact in addressing unfair contract terms in consumer
contracts by identifying those market sectors in which such terms were prevalent. The
ACCC drew upon its complaints data and extensive consultation with Australian consumer
organisations to help identify these sectors.
82
Regulation impact statement
Attachment A - Survey results
Survey: Business contracting practices and unfair contract terms
3.212 The Commonwealth Treasury, on behalf of CAANZ, undertook
a survey from 23 May 2014 to 1 August 2014 on business contracting
practices and unfair contract terms.
Key points
• Standard form contracts are used widely across a variety of
industries and business sizes.
- Many businesses reported experiencing unfair terms in
standard form contracts and harm as a result of these terms.
• The results of the survey support the proposition that small
businesses may be more vulnerable to unfair contract terms
than medium and large businesses. This is supported by the
findings that:
- small business respondents are less likely to have
in-house legal expertise, seek legal advice on contracts or be
able to afford legal or financial advice;
- small business respondents have less of an
understanding of the common terms and conditions found in
standard form contracts;
- small business respondents spend less time reviewing
contracts on average, though this could in part reflect a
difference in the number and complexity of contracts that
they are offered compared to larger businesses;
- small business respondents are more likely to feel that
their business does not have the resources to negotiate a
better deal, that standard form contracts are offered on a 'take
it or leave it basis' and terms can't be negotiated; and
- small business respondents are more likely to do
nothing when they encounter an unfair term as their business
does not feel it is in a position to negotiate.
• It should be noted, however, that a large proportion of
medium and large businesses also reported lacking legal
expertise and sufficient resources to negotiate contracts.
83
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
• Businesses of all sizes indicated that when purchasing a good
or service using a standard form contract, the main focus of
their business is on the price and quality of the good they
were purchasing/supplying, and not contract terms.
Research method
• The survey was developed with the assistance of ORIMA
Research and contained 48 questions. It was accessed via the
Commonwealth Treasury website and was publicised through
a variety of channels, including the websites of
www.business.gov.au, industry associations, Small Business
Commissioners and State and Territory Consumer Affairs
agencies, as well being emailed directly to a broad range of
stakeholders.
• Most questions in the survey were not mandatory. This led to
low numbers of responses to some questions. Mandatory
questions relating to business size and whether standard form
contracts had been offered were used to filter access to
follow up questions.
• There were 287 business representatives who commenced the
survey, of whom 23 were excluded when they indicated they
had no responsibility for contracts for their business.
Characteristics of participants
• The 264 participants came from a range of industries with the
greatest numbers from retail (21 per cent), accommodation
and hospitality (11 per cent), professional, scientific and
technical services (11 per cent) and building and construction
(10 per cent).
• The majority of participants were from businesses that could
be classified as 'small', with 173 (66 per cent) having an
annual turnover of less than $2 million (Diagram 2) and 208
(79 per cent) reporting having fewer than 20 employees.
• Businesses with 20 to 199 employees were represented by 49
(19 per cent) participants and there were seven participants
from large businesses (200+ employees), representing three
per cent of total participants.
• For the purpose of this report, the definition of a small
business is taken from the ABS, that is, a business that
employs fewer than 20 people.
84
Regulation impact statement
Diagram 3.1: Respondents by annual turnover
34% Less than $2
million
$2 million or
66% more
Diagram 3.2: Respondents by number of employees
3%
9%
18% None
1 to 4
34% 5 to 19
20 to 199
36% 200+
• Only eight per cent of respondents from small business
indicated that they had in-house legal expertise, compared to
16 per cent for medium businesses and 57 per cent for large
businesses.
85
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
Experience with standard form contracts
• The majority (80 per cent) of respondents reported being
offered a standard form contract in the past 12 months. Most
commonly, participants reported receiving one to five (39 per
cent) or six to 20 (35 per cent) standard form contracts.
- The median number of standard form contracts for
small businesses was five and the average was 7.6.
• The table below shows the proportion of contracts offered to
business that are standard form. Small business respondents
were more likely to report that all or nearly all of the
contracts they receive are standard form.
Table 3.3: Proportion of contracts standard form (%)
Proportion Small Business Medium and large
A minority were standard form 13.1 19.2
contracts
Roughly half were standard form 15.0 19.2
contracts
A majority were standard form 33.1 38.5
contracts
All or nearly all were standard 38.8 23.1
form contracts
• Standard form contracts are mainly used where the
transaction value is below $100,000 and least likely to be
used for transactions above $250,000.
- The following diagram shows the maximum standard
form contract value identified by respondents in the survey.
- Only 22 per cent of small businesses are offered
standard form contracts worth more than $100,000,
compared with 57 per cent of medium and large firms.
86
Regulation impact statement
Diagram 3.3: Maximum value of standard form contracts for small businesses
and medium to large businesses110 (Proportion of respondents)
Per cent Per cent
30.0% 30.0%
25.0% 25.0%
27%
27%
27%
23%
20.0% 20.0%
20%
15.0% 15.0%
14%
14%
13%
10.0% 10.0%
11%
9%
5.0% 5.0%
7%
1%
2%
5%
0.0% 0.0%
No Less than Between Between Between Between More than
standard $1,000 $1,000 and $10,000 $100,000 $250,000 $1 million
form $10,000 and and and $1
contracts $100,000 $250,000 million
Small Businesses Medium and Large Businesses
• Standard form contracts are used across a wide range of
goods and services, with the most commonly reported being
telecommunications (59 per cent of respondents), insurance
(56 per cent), banking and financial products (48 per cent),
utilities (43 per cent), and supply agreements (36 per cent).
- It is likely that some small businesses would have
standard form contracts for several different agreements. Of
the respondents answering this question, 35 had been offered
standard form contracts for all of telecommunications,
insurance, financial products and services and utilities.
• Small businesses tend to spend less time reviewing standard
form contracts, with 30 per cent selecting either less than
five minutes or five to nine minutes. In contrast, only
12 per cent of medium to large business respondents reported
spending less than 10 minutes, and 69 per cent reported
spending 20 minutes or more reviewing standard form
contracts.
110 For this diagram, the maximum standard form contract value indicated by participants can
be used as a proxy for the maximum value of standard form contracts that the participant's
business is offered. That is, if a participant gave responses only at levels between $1,000
and $100,000 it might be assumed that their business does not receive standard form
contracts with values above $100,000.
87
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
• Participants were asked to indicate the conditions in which
their business was less likely to thoroughly review a standard
form contract. There were small differences between
business sizes for some of the more common responses, such
as the contract being of low value, or being a renewal or of
short duration.
- Small business respondents, however, were more
likely to not thoroughly review the contract if it is too
complicated and they lack legal expertise.
- In contrast, larger business respondents were much
more likely to not thoroughly review standard form contracts
when the contract is of low risk or where they trust the other
party.
• Participants were asked about the extent of their agreement
with several statements regarding their ability to review and
negotiate standard form contracts. The figure below
compares the responses to two of these statements, showing
that many small businesses have neither sufficient resources
to negotiate contracts or access to advice to assist in
reviewing contracts.
- In addition, small business respondents were more
likely to agree that they assume contracts are standard and
contain no unfair terms and that contracts are offered on a
'take it or leave it basis.
88
Regulation impact statement
Diagram 3.4: Agreement with statements relating to ability to negotiate for small
businesses and medium to large businesses
Disagree Agree
Business lacks resources to negotiate
Small business 7% 12% 16% 34% 30%
Medium / large business 8% 18% 22% 37% 14%
respondents
Business cannot afford legal or financial advice
Small business respondents 6% 4% 8% 25% 57%
Medium / large business respondents 10% 14% 18% 18% 40%
Strongly Disagree Disagree Neither Agree nor Disagree Agree Strongly Agree
• The survey also sought to understand what additional actions
businesses take in addition to reviewing a contract.
Approximately 59 per cent of respondents indicated that they
often or always considered the penalty clauses contained in a
contract. However, the majority of respondents also indicated
that they never or rarely sought legal advice, contacted
referees or seeks reviews.
• Another survey item considered understanding of common
contract terms and conditions. It found that small business
respondents were more likely than medium and large
business respondents to have little or no understanding of all
of these terms and conditions. This difference in
understanding was particularly marked for mediation
approaches, penalties and limits to liability.
Experience with unfair contract terms
• Of the 212 participants who reported being offered standard
form contracts, 60 per cent of small businesses and 69 per
cent of medium and large businesses claimed to have
experienced unfairness in terms and conditions.
- This difference might reflect a different understanding
of contract terms, as the survey found that comprehension of
89
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
common terms was shown to be greater for larger business
respondents.111
• Large businesses were identified as offering contracts with
unfair terms in the majority of cases. The goods and services
most commonly cited by respondents as containing unfair
contract terms included standard form contracts for supply of
ATM services, waste removal, telecommunication services,
and franchising agreements.
• Participants were also asked about the value of the contracts
which included unfair terms. The majority unfair terms
encountered by small businesses were in contracts with
values of less than $100,000. For larger businesses, 40 per
cent of the contracts reported to have unfair terms were for
values above $250,000. In contrast, only 12 per cent of small
businesses finding unfair terms stated that these contracts had
a value above $250,000. See Diagram 5 below.112
Diagram 3.5: Value of contracts with unfair terms reported by small businesses
and medium to large businesses
• Those participants who reported experiencing unfair contract
terms were asked about the action they took.
- For small business respondents, the most common
actions were to ask the provider to explain the terms, ask the
provider to delete the terms or do nothing as the business is
not in a position to negotiate.
- Larger businesses also tended to ask for deletion or
explanation, although they were much less likely than small
businesses to ask for an explanation. Larger businesses were
also far less likely to do nothing than small businesses and
were more likely to look for another provider.
• Of the participants reporting unfair contract terms,
42 per cent (44 per cent of small business respondents)
111 Respondents were informed that the ACL contains provisions to protect consumers against
unfair terms in standard form contracts and were given examples of terms that may be
considered unfair.
112 Any respondents who gave a value of $0 were excluded, leaving 71 respondents overall
with 51 from small businesses and 20 from medium and large firms.
90
Regulation impact statement
reported experiencing some harm as a result of the unfair
terms. Examples of the loss or harm incurred by respondents
included: 'loss of clients due to failure to back products', 'an
immense amount of executive management time and legal
advice', as well as 'paying an absurd termination fee'.
- Of the 58 respondents who reported incurring losses,
76 per cent stated that they undertook informal negotiations
with the other party to address the unfair term.
- Formal channels were used by 28 per cent of
respondents to seek redress, including complaints to a
regulator (such as the ACCC or ASIC), use of a dispute
resolution service (including through a state Small Business
Commissioner), or legal action. The use of formal resolution
methods incurred additional costs, with 12 of the 16
respondents reporting costs to their business.
Issuing standard form contracts
• The final sections of the survey considered whether
participants' businesses issued standard form contracts to
other firms and, if so, how these contracts were developed
and reviewed.
- The results showed that 24 per cent of small
businesses and 41 per cent of medium/large businesses issued
standard form contracts to other businesses.
- The most commonly cited method of developing
contracts was to use industry standard templates, followed by
using a lawyer to design the contract, and drawing on
in-house legal expertise.
Survey by Consult Australia
3.213 In their submission to the consultation process, Consult
Australia reported that they had conducted a survey of their smaller
member firms to ascertain the prevalence of, and how they treat standard
form contracts.
3.214 Consult Australia noted that results of the survey suggest that
'standard contracts in our industry are very common, and bespoke
contracts are used more for larger projects.'
3.215 Consult Australia reported that:
91
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
• Approximately half of the respondents indicated that more
than half of the contracts they are presented with are standard
form, with only 25 per cent of respondents indicating that 20
per cent or less of their work is done using standard form
contracts.
• Almost 85 per cent of respondents indicated that the standard
contracts are for fees of less than $100,000.
• When presented with standard contracts, more than 90 per
cent of respondents indicated they review the terms all the
time, with the remaining responses answering that they
reviewed the terms most of the time.
• Just under half of respondents answered that they did not
seek professional legal advice, while those respondents who
indicated they did obtain professional legal advice
overwhelmingly only used this advice sparingly, with more
than half of respondents answering that they only obtained
that advice for less than 20 per cent of contracts.
• Only one single respondent indicated that they get legal
advice for 80 to 100 per cent of the contracts offered to them.
Small Business Development Corporation of Western Australia
3.216 The SBDC also conducted a survey, the results of which were
included in its submission to the consultation process.
3.217 In summary, the SBDC found that all of the respondents to its
survey had been offered standard form contracts with unfair terms in the
past.
• Like the survey conducted by the Commonwealth Treasury,
many small business respondents to the SBDC survey only
sometimes read the contracts there were offered, or skimmed
through them.
• Small business respondents were likely to believe that the
other party would not negotiate contract terms and 69 per
cent reported being offered contracts on a 'take it or leave it'
basis. In addition, 40 per cent of respondents reported not
having the power to negotiate.
• Considering the harm arising from unfair terms, the SBDC
reported that financial loss was the most commonly
mentioned detriment (30 per cent of respondents), followed
92
Regulation impact statement
by loss of business opportunity (16 per cent); the creation of
compliance obligations that required unreasonable time and
effort to address (16 per cent) and reputational damage (13
per cent).
Attachment B - Consumer unfair contract terms protections in
the Australian Consumer Law
3.218 The Productivity Commission's recommendation for
introducing a legislative protection against unfair terms for consumer
contracts was implemented in some jurisdictions from 1 July 2010 and for
all jurisdictions from 1 January 2011. It is found in Part 2-3 of the ACL.
3.219 While the 2009 exposure draft legislation was expressed as
capable of applying to business-to-business contracts, the final form of the
legislation was expressed to apply to all businesses which use standard
form contracts in their dealings with consumers.
3.220 A 'consumer contract' is defined as a contract for a supply of
goods or services or sale or grant of an interest in land 'to an individual
whose acquisition of the goods, services or interest is wholly or
predominantly for personal, domestic or household use or
consumption'.113
3.221 A 'standard form contract' will typically be one that has been
prepared by one party to the contract (most commonly the supplier) and is
not subject to negotiation between the parties. Ultimately, this is a matter
for the court to determine.114
3.222 A term is deemed to be 'unfair' if it:
• would cause a significant imbalance in the parties' rights and
obligations;
• is not reasonably necessary in order to protect the legitimate
interests of the party who would be advantaged by the term;
and
113 Section 23 of the ACL.
114 Section 27 of the ACL.
93
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
• would cause detriment (financial or otherwise) to a party if
relied upon.115
3.223 In determining whether a term is 'unfair', the court is required to
take into account:
• the extent to which the contract is transparent -- that is, if the
term is expressed in reasonably plain language, legible and
presented clearly and readily to the party affected by it; and
• the contract as a whole.116
3.224 There are a number of exceptions to the application of the unfair
contract terms provisions. For example, the provisions do not apply to
terms that:
• define the main subject matter of the contract; or
• set the upfront price payable under the contract.117
3.225 Similar protections apply to most financial products and services
purchased by consumers through Subdivision BA of the ASIC Act, where
there are 'unfair' terms in a 'consumer contract' and the contract is a
'standard form contract'. The definitions of these terms in the ASIC Act
largely mirror those in the ACL.
3.226 Insurance contracts are excluded from the operation of the unfair
contract term provisions in the ASIC Act by the Insurance Contracts
Act 1984 (Cth) (IC Act).118 This is due to a general exclusion of remedies
under other Acts on the basis that the IC Act consumer protections should
be the sole source of remedies in relation to insurance contracts.
Enforcement
3.227 Enforcement of the consumer unfair contract terms protections
is shared between the ACCC, ASIC and the state and territory fair trading
bodies. Individual consumers may also be entitled to take their complaint
to the small claims court or tribunal in their state or territory, or to take
private legal action.
115 Section 24 of the ACL.
116 Ibid.
117 Section 26 of the ACL.
118 Section 15 of the Insurance Contracts Act 1984 (Cth).
94
Regulation impact statement
3.228 The role of the courts is to determine whether a term in a
standard form consumer contract is unfair and to make orders which
remedy any breach of the unfair contract terms protections. It is not the
role of a regulator to endorse contract terms or to state categorically that
they are unfair.
3.229 If a court finds a contract term to be unfair, it can make orders
such as: declaring all or part of the contract to be void; varying a contract
or arrangement as the court sees fit; or directing the respondent to repair
or provide parts for a product provided under a contract at their expense.
Civil pecuniary penalties are not available in the event that a court
declares a term unfair and void.
3.230 Just because a contract contains an unfair term does not
automatically mean the whole contract is void. A contract containing a
void term will be valid unless it cannot operate without the unfair term.119
Attachment C - Existing laws and regulations
3.231 This Attachment provides background to a number of laws and
regulations that may be relevant to the issue of unfair contract terms in
small business contracts.
The Competition and Consumer Act 2010
3.232 The ACL's unfair contract term protections for consumers
could under some circumstances benefit small businesses. To the extent
that a good or service is for both domestic and business use (for example,
computer spyware software) and the business offering the standard form
contract does not use different contracts for consumers and a small
businesses, small businesses may also benefit where they are offered a
contract free of unfair terms. However, small businesses have no
legislative protections where the terms are present and enforced.
3.233 Under the prohibition against misleading or deceptive conduct,
it is unlawful for a business to make statements in trade or commerce that
are misleading or deceptive, or would be likely to mislead or deceive. This
provides consumers and businesses with recourse where a contract they
agree may not represent their informed consent due to the fraudulent or
misleading behaviour by a party to the contract. However, a contract term
can be unfair without behaviour being misleading or deceptive.
119 Section 23 of the ACL.
95
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
3.234 The ACL prohibits unconscionable conduct in trade or
commerce in connection with the supply of goods or services to a person
(other than a publicly listed company), which includes small businesses.120
In 2010, the prohibitions were amended to provide that a court may have
regard to a number of matters in determining whether there has been
unconscionable conduct. These include relative bargaining power,
whether any undue influence or pressure was exerted by the supplier, and
the extent to which the supplier was willing to negotiate the terms and
conditions of any contract for supply.
• It is unlikely that the unconscionable conduct provisions can
directly address unfair contract terms as, to date, the courts
have applied the provisions to matters of 'procedural'
unfairness (that is, conduct), not 'substantive' unfairness
(that is, the terms themselves).121 Therefore, an extension of
unfair contract term protections for small businesses would
complement unconscionable conduct provisions.
3.235 Under the ACL, suppliers of goods and services must adhere to
the specified consumer guarantees which cannot be excluded, modified or
limited by contract. They provide a minimum acceptable standard for
terms in consumer contracts.122 The provisions apply to 'consumer
transactions' and adopt the meaning of 'consumer' in section 3 of the
ACL.123 Therefore, small businesses can be protected for transactions of
goods and services under $40,000 that are ordinarily used for personal,
120 See section 21 of the ACL. See also section 12CB of the ASIC Act, which includes
equivalent protections for the provision of financial products and services.
121 See, for example, Frank Zumbo's submission to the Productivity Commission Inquiry in
2008 that led to the introduction of the consumer protections, which noted that 'procedural
unconscionability bias remains a critical limitation on using the equitable doctrine or the
existing statutory prohibitions against unconscionable conduct to deal with unfair terms' at
page 15. Additionally, consultations in 2013 on the efficacy of the Franchising Code
identified concerns with terms of franchise agreements, suggesting reforms to
unconscionability provisions had not addressed concerns with contract terms between big
and small businesses.
122 In relation to goods, the guarantees include that the goods supplied are of acceptable
quality, goods supplied by description correspond with the description and that goods are
reasonably fit for the purpose represented by the supplier or disclosed by the consumer
(whether expressly or by implication). In relation to services, the guarantees include that
the services will be rendered with due care and skill, within a reasonable time.
123 The definition of 'consumer' in section 3 of the ACL captures transactions involving
acquisition of goods that would ordinarily be acquired for personal, domestic, or
household use or consumption and are not acquired for the purpose of re-supply, as well as
all transactions under $40,000.
96
Regulation impact statement
domestic or household use, and not for the purpose of resupply or use in
trade or commerce.124
• Consumer guarantees primarily apply to core terms regarding
the nature and quality of the good or service, rather than
terms relating to matters such as dispute resolution or in the
length of the contract. Consequently, consumer guarantees do
not directly address unfair contract terms.
3.236 The CCA prohibits anti-competitive conduct in all sectors of
the economy. In particular, it is unlawful to enter into contracts,
arrangements or understandings which have the purpose, effect or likely
effect of substantially lessening competition, or which contain
exclusionary provisions. Section 46 prohibits the misuse of market
power, with firms prohibited from taking advantage of a substantial
degree of power for the purpose of eliminating or substantially damaging
a competitor, preventing entry into a market or deterring competitive
conduct.
• A number of submissions raised competition-related
concerns with unfair contract terms in small business
contracts. For example, the Pharmacy Guild of Australia and
the Australian Newsagents' Federation suggested that
pharmacies and newsagents (often small businesses) are
vulnerable in negotiating leases, particularly with large
shopping centres who can seek agreement to unfair contract
terms on the basis that if they do not accept those terms,
another business will.
State and territory measures
3.237 States and territories may also provide measures that can protect
small business contracts. For example, Chapter 7 of Victoria's Australian
Consumer Law and Fair Trading Act 2012, which sets out the Victorian
Civil and Administrative Tribunal's powers, provides at section 185, that
it may make any order it considers fair, including declaring unjust terms
void, where the amount in dispute does not exceed $10,000. This power is
not limited to standard form contracts.
124 However, the guarantees do not apply to all transactions under $40,000, given that the
consumer guarantee provisions do not apply to: contracts of insurance; or contracts for the
transportation or storage of goods for the business, trade, profession or occupation of the
person for whom the goods are transported or stored.
97
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
Industry-specific measures
3.238 In response to concerns in some industry sectors regarding the
prevalence of unfair contract terms and contracting practices more
broadly, several industry-specific measures have been introduced that
protect against unfair contract terms.
3.239 Under the Independent Contractors Act 2006 (Cth), independent
contractors can seek judicial review of a services contract deemed 'unfair'
or 'harsh'.125 If deemed 'unfair' or 'harsh' the court may order that the
contract be set aside (in whole or in part) or varied. When determining
whether a contract is 'unfair' or 'harsh', a court may consider:
• the terms of the contract; and
• other matters permitted under the Act such as the relative
bargaining power of the parties, whether any undue influence
or tactics were used, and the appropriateness of the
remuneration provided under the contract.
3.240 While there have only been a few cases there is evidence it
provides a substantial level of protection. For example, in Keldote Pty Ltd
& Ors v Riteway Transport Pty Ltd the applicant successfully argued that
their contracts were unfair because they allowed the respondent to
unilaterally require them to provide a truck that was considerably different
from the one they had already provided under the contract.
• However, the consultations revealed differing views
regarding whether the Act provides small businesses with
sufficient protection from unfair contract terms.126
3.241 New South Wales' Motor Vehicle Dealers and Repairers
Act 2013 provides protections against unfair contract terms in contracts
for the supply of motor vehicles between motor dealers (often small
businesses) and manufacturers. The test for unfairness, outlined in
section 142, is the same as the test in the ACL's consumer unfair contract
terms protections.
125 See section 12 of the Independent Contractors Act 2006 (Cth). Judicial reviews of services
contracts are limited to circumstances where the contracted work is performed by either a
natural person who is an independent contractor or, where an independent contractor is a
body corporate, a director or family member of a director, of the body corporate.
126 For example, Independent Contractors Australia argued the protections are ineffective
while the Ai Group argued they are effective. Also, the Direct Selling Association of
Australia argued that its members' distributor agreements are covered by the Act so should
be exempt from any extension of unfair contract terms protections.
98
Regulation impact statement
• However, it appears that the remedies available under this
Act are substantially different to the ACL protections. For
example, a business cannot institute proceedings until they
have complained to the NSW Small Business Commissioner
and obtained a certificate under section 19 of the Small
Business Commissioner Act 2013 (NSW) and they must also
provide notice to the department that administers the Act.
Where the available remedies are considered less favourable
than the new protections it may not be exempted on the basis
that it is not an equivalent enforceable mechanism.
3.242 A number of requirements are currently provided in the
telecommunications sector which can apply to small businesses. These
aim to provide customers of telecommunications businesses, including
small business customers, with the information they need to make an
informed decision, rather than providing protection against unfair contract
terms. In this sense these requirements complement the proposed unfair
contract term protections.
• For example, section 479 of the Telecommunications
Act 1997 (Cth) provides that the terms of a
telecommunications contract with a person (including a
person who operates a small business) are as agreed with
them or as set out in a standard form contract which has been
entered into by the parties. Where a standard form contract is
used, there are disclosure obligations on telecommunications
businesses to ensure customers can make an informed
decision (for example, a requirement to provide a summary
document setting out key contract terms such as those
regarding termination or renewal).
• The Telecommunications Consumer Protection Code 2012,
an industry code registered with the Australian
Communications and Media Authority, sets out protections
for consumers (including consumers who are small
businesses). It provides that contracts must be made available
and be in plain, clear language, and that a supplier must not
'include terms which would be unfair in its standard form
customer contracts under the law' (for example, unilateral
variation or contract extension).127 A 'customer' can be a
127 Clause 4.5.3. Unfair has the same meaning as the ACL.
99
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
business or not-for-profit organisation where the contract is
worth less than $20,000 per annum.128
Industry Codes under the Competition and Consumer Act 2010
3.243 Part IVB of the Competition and Consumer Act 2010 provides
for the prescription of industry codes (mandatory or voluntary) to regulate
the conduct of industry participants in their dealings with each other or
towards consumers. It is a co-regulatory tool that is used where
self-regulation has not been effective and a legislative solution is not
considered appropriate, and allows for a clear set of rules that define best
practice for conduct in a given industry.
3.244 To date, six industry codes of conduct have been prescribed
under the Act, all of which are mandatory, except for the recently
introduced voluntary Food and Grocery Code:
• Franchising Code: regulates the conduct of franchisors and
franchisees in their dealings towards each other;
• Horticulture Code: regulates dealings to improve clarity and
transparency of transactions between growers and
wholesalers of fresh fruit and vegetables;
• Oilcode: regulates the conduct of suppliers, distributors and
retailers in the petroleum retail industry in Australia;
• Unit Pricing Code: requires certain grocery retailers to adopt
unit pricing when selling particular grocery items; and
• Port Terminal Access (Bulk Wheat) Code: regulates the
conduct of bulk wheat port terminal operators.
• Food and Grocery Code: regulates the conduct of
supermarket retailers or grocery wholesalers (that agree to be
bound) in their dealings with suppliers. This code
commenced on 2 March 2015 and is the first prescribed
voluntary code under the Act.
3.245 The explanatory memorandum accompanying the regulatory
amendments to introduce the industry codes framework in 1997 discussed
the need to address unfair contract terms, recommending the introduction
of industry codes of conduct to deal with unfair contract terms in
128 Clause 2.1.
100
Regulation impact statement
franchising and retail tenancy. However, there is no prohibition of unfair
contract terms in any of these above codes which largely focus on
ensuring procedural fairness and would complement unfair contract term
protections.
• For example, the Franchising Code sets out a number of
protections and disclosure requirements, including cooling
off rights, and was recently strengthened by the introduction
of a general duty on all parties to act in good faith. It also
limits the enforceability of certain terms, such as a restraint
of trade clause, if certain conditions are met on conclusion of
agreement. It does not, however, provide for a general review
of unfair contract terms in standard form contracts, which
was an issue raised in the consultation process.
3.246 There were mixed views on whether sectors which are subject to
an industry code of conduct under the Competition and Consumer
Act 2010 should be exempt from a legislative extension of unfair contract
terms protections. For example, some called for the franchising sector to
be exempt because the sector 'is already highly regulated',129 while others
argued further protections should be provided, including unfair contract
terms protections for small business contracts.130
• Those calling for protections argued that despite disclosure
requirements and other protections, unfair contract terms are
still included in agreements and an imbalance of bargaining
power can prevent prospective franchisees from negotiating
their removal.
• Some also raised concerns with the use of documents
prescribing rights and responsibilities that fall outside of the
franchise agreement (for example, operating and procedures
manuals).131
129 See, for example, submissions by Franchise Council of Australia, Real Estate Institute of
Australia and the Victorian Small Business Commissioner.
130 See, for example, submissions by the Franchisees Association of Australia and Australian
Automotive Dealer Association.
131 Such a document is prepared and maintained by the franchisor. Failure to comply with this
document, including provisions that could be unfair, could result in the termination of the
franchise agreement.
101
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
Retail Tenancy
3.247 Retail tenancy is regulated by state and territory laws which
generally provide: minimum conditions; detailed rules on key issues such
as information disclosure requirements and termination rights; and dispute
resolution mechanisms. Retail tenancy legislation varies between
jurisdictions and does not explicitly prevent the inclusion of unfair
contract terms.
3.248 Retail tenancy legislation would complement a national unfair
contract terms protections for small business. It provides additional
measures to assist businesses to make contracting decisions or resolve
disputes, while the proposed unfair contract terms protections provides
specific rights with respect to reviewing unfair terms in standard form
agreements.
3.249 Regarding the applicability of retail tenancy laws, those who
support retail tenancy agreements being exempt from the proposed
protections claim they are already appropriately regulated.132 Those who
call for the protections to include retail tenancy agreements argue that the
effectiveness of disclosure requirements is questionable, that a number of
unfair terms are used (for example, permitting unilateral contract
variation), and that documents referred to in retail leases can be provided
after agreement has been reached and be unilaterally varied by the
landlord (for example, fit-out requirements).133
Financial Products and Services
3.250 A number of stakeholders suggest financial products and
services should be exempt arguing current protections provide appropriate
coverage of small business contracts.134 For example:
• the ASIC Act regulates the provision of credit to small
businesses, including lending, broking and advice activities,
primarily though the prohibitions on unconscionable and
misleading or deceptive conduct.
• Chapter 7 of the Corporations Act 2001 (Cth) provides
protections to small businesses where they are defined as
132 See, for example, the submission by the Shopping Centre Council of Australia.
133 See, for example submissions by the Pharmacy Guild of Australia and the Australian
Retailers Association.
134 See, for example, Australian Bankers' Association's submission.
102
Regulation impact statement
'retail clients' and obtain financial products or services, other
than credit.
• the banking industry's Code of Banking Practice 2013 sets
standards of good banking practice (including for credit
facilities and requires signatories to be members of an
ASIC-approved independent external dispute resolution
service) for small business customers. However, the Code
focuses on practices rather than terms and conditions and
deals narrowly with some issues, raising the question of
whether its provisions are sufficiently broad to protect
against unfair contract terms.
• those providing financial advice and offering financial
products require an Australian Financial Services Licence
(AFSL). Under section 912A of the Corporations Act 2001
(Cth), an AFSL-registered person must do all things
necessary to ensure their services are provided 'efficiently,
honestly and fairly'.
3.251 However, a number of submissions argued that existing
protections are not adequate in dealing with the underlying issue of
fairness in contractual dealings and therefore the protections should cover
financial products and services.135 Examples of unfair terms include:
• the use of 'fee farming' and 'equity stripping' for small
businesses in urgent need of finance.136 It was also suggested
that some non-monetary covenants in credit contracts may
seem unfair.
• It was suggested that the introduction of consumer unfair
contract term protections saw a change in terms that had
imposed unfair liabilities on consumers, creating broad and
effective outcomes, and that similar outcomes could be
achieved for small businesses.137
3.252 In its final report released in December 2014, the Financial
System Inquiry endorsed the Government's process to extend unfair
135 See, for example, the submission by the Tasmanian Small Business Council. Several
confidential submissions also argued this point.
136 Fee farming' occurs when a broker's contract requires a small business to pay a fee
irrespective of whether the loan proceeds or not. 'Equity stripping' occurs where finance is
provided to a small business in a situation where default by the borrower is likely and
requires the payment of excessive default fees.
137 This point was made in a confidential submission.
103
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
contract term protections to small businesses.138 The report notes that
these protections may improve broader contracting practices and help deal
with issues relating to the fairness of non-monetary default covenants.
Insurance
3.253 Insurance contracts are governed exclusively by the Insurance
Contracts Act 1984 (Cth). Section 15 excludes the operation of any other
law with respect to, among other things, whether an insurance contract is
harsh, oppressive, unconscionable, unjust, unfair, inequitable or the result
of a misrepresentation.
3.254 The Act provides an alternative set of requirements for insurance
contracts. In particular, it requires insurance companies to observe the
duty of utmost good faith in relation to other parties. While some argued
the protections it provides for customers of insurance products are
sufficient,139 others argue the protections against unfair contract terms
should be extended to insurance as it could result in different claim
outcomes in certain circumstances.140
Building and construction
3.255 Domestic building contracts are regulated by the states and
territories and protections can vary between jurisdictions and do not
explicitly prevent the inclusion of unfair contract terms.
3.256 The Master Builders Association has called for an exemption
from any unfair contract term protections for domestic building contracts,
arguing that such an extension would allow the re-opening of contracts
that have already been negotiated transparently, create uncertainty and
lead to increased litigation in the sector.
3.257 The House Industry Association also opposes the introduction of
unfair contract term laws to the residential building industry. They argue
that existing legal protections are adequate, including competition and
consumer laws, the Independent Contractors Act 2006 (Cth), and security
of payment legislation, in addition to state and territory building and
construction legislation.
138 See Recommendation 34 of The Financial System Inquiry Final Report, November 2014,
.
139 See, for example, submissions by the Insurance Council of Australia and Insurance
Australia Group.
140 See, for example, the submission by the Financial Rights Legal Centre.
104
Regulation impact statement
3.258 A confidential submission argued that the extension of
protections should capture small business suppliers of professional
services in the construction industry. According to this submission, there
has been an increase in contractual terms which trigger 'assumed
liability', 'waiver of rights' exclusions and contracting out of
proportionate liability, as well as terms such as unilateral rights of
termination and variation of work without compensation.
105
Statement of Compatibility with Human
Rights
Prepared in accordance with Part 3 of the Human Rights
(Parliamentary Scrutiny) Act 2011
Treasury Legislation Amendment (Small Business and Unfair Contract
Terms) Bill 2015
4.1 This Bill is compatible with the human rights and freedoms
recognised or declared in the international instruments listed in section 3
of the Human Rights (Parliamentary Scrutiny) Act 2011.
Overview
4.2 This Bill extends the consumer unfair contract term protections
contained in the Australian Securities and Investments Commission
Act 2001 (ASIC Act) and Schedule 2 of the Competition and Consumer
Act 2010 (CC Act) to cover businesses with less than 20 employees
agreeing to standard form contracts valued less than a prescribed
threshold; and allows for the exemption of small business contracts that
are subject to prescribed laws deemed enforceable and equivalent to the
unfair contract term protection in the ASIC Act and/or the CC Act.
Human rights implications
4.3 This Bill does not engage any of the applicable rights or freedoms.
Conclusion
4.4 This Bill is compatible with human rights as it does not raise any
human rights issues.
107
Index
Schedule 1: Amendments
Bill reference Paragraph number
Items 1 to 5, subsection 12BA(1) of Division 2 of Part 2 1.38
Item 3, subsection 12BA(1) of Division 2 of Part 2 1.38
Items 6 and 11, sections 12BF and 12BI of Division 2 of Part 2 1.38
Item 7, subsection 12BF(1) of Division 2 of Part 2 1.10
Item 8, subsection 12BF(4) of Division 2 of Part 2 1.17
Item 8, subsection 12BF(5) of Division 2 of Part 2 1.28
Item 8, subsection 12BF(6) of Division 2 of Part 2 1.25
Items 9, 12 and 13, subsections 12BG(1) to (2) and (4), 12BH(1) and 1.38
12BI(1) to (3) of Division 2 of Part 2
Item 10, paragraph 12BH(2)(aa) of Division 2 of Part 2 1.38
Item 14, subsection 12BL(2) and paragraph 12BL(3)(a) of 1.29
Division 2 of Part 2
Item 14, paragraph 12BL(3)(b) of Division 2 of Part 2 1.31
Items 15 to 17, subsections 12GD(9), 12GM(10), 12GN(9), 1.38
12GND(2) to (5) and paragraph 12GNB(1)(a)(ii) of Division 2 of
Part 2
Item 18 1.39
Items 19 to 21, paragraph 137D(b) and subparagraphs 137F(2)(b)(ii) 2.35
and (d)(ii) of Division 7 of Part XI and subsection 139G(2) of
Division 9 of Part XI; Schedule 1, items 41 to 47,
subsections 232(3), 242(1), 250(2) to (5), paragraph 238(1)(b) and
subparagraphs 237(1)(a)(ii), 239(1)(a)(ii) of Part 5-2 of Schedule 2
Item 22, subsection 139G(2)(aa) of Division 9 of Subdivision G 2.35
Item 23, subsection 139G(2A) of Division 9 of Part XI 2.31
Items 24 to 28, subsection 2(1) of Chapter 1 of Schedule 2 2.35
Item 26, subsection 2(1) of Chapter 1 of Schedule 2 2.35
Items 29 and 37, sections 23 and 26 of Part 2-3 of Schedule 2 2.35
Item 30, subsection 23(1) of Part 2-3 of Schedule 2 2.12
Item 31, subsection 23(4) of Part 2-3 of Schedule 2 2.19
Item 31, subsection 23(5) of Part 2-3 of Schedule 2 2.28
109
Treasury Legislation Amendment (Small Business and Unfair Contract Terms) Bill 2015
Bill reference Paragraph number
Items 32 to 36 and 38 to 39, subsections 24(1) to (2) and (4), 26(1) 2.35
to (2) and section 25 of Part 2-3 of Schedule 2
Item 40, subsection 28(4) of Part 2-3 of Schedule 2 2.29
Item 48 2.36
110