It's regrettable that Canada and its provinces are way behind progressive thinking of other countries such as Denmark, Australia, Italy, when it comes to family law. Canada and other countries are still living in the "Middle Ages" and its existing laws do considerable harm to children and parents. We can learn a great deal from other countries that have adopted equal or shared parenting and reduce harm toward children and their parents.
Child and educational psychologist, Dr. Peter Tromp, presents brief summaries by country on the present state of Shared Parenting Legislation in the countries of the European Union.
1. Italy now has a mix of joint legal custody and elements of joint physical custody since a law change that came into effect on 16th March 2006.
2. France has a mix of joint legal custody and elements of joint physical custody (Residence Alternee) that came into effect in 2002. An estimated 15% of French children of divorce are now growing up in shared parenting and alternating residence arrangements.
3. Belgium on the initiative of its Socialist Party now has implemented presumptive 50/50 joint physical custody legislation (effective bi-location of the children) after parental separation in both its House of Commons and Senate which came into effect when it was formally published by the Belgian Federal Government on the 4th of September 2006. The new Belgian federal law on bi-location will be discussed at more length in my presentation below.
4. In the Netherlands joint legal custody was implemented in family law by the Dutch Parliament in 1996 making joint legal custody the standard for post-divorce parental authority. And with the new Dutch Law on Continued Parenting after Separation (no. 30145), that went into effect on 1 January 2009, this was followed by the introduction in Dutch family law of the basic principle of the equality of both parents and the presumption of equal parenting (both before and after divorce or separation, and regardless of whether the parents were previously married or not). The new Dutch family law also introduces a strong incentive for separating parents to come up with a mutually agreed parenting plan during the separation and divorce proceedings.
The new Dutch law reform will be discussed at more length in my presentation below. Considering however the poor Dutch tradition on effective family law reform, the mainly decorative value of Dutch family court orders for fathers and the Dutch family court’s tradition of legislating from the bench, it still remains to be seen what this new Dutch law will bring in day-to-day family court practises for divorcing and separating parents and their children.
5. Norway still has sole physical custody but its Minister of Justice has already announced (in 2007) a complete family law review based on the principles of presumptive joint physical custody. Up until now, however, this has not yet materialized.
6. Ireland has, since the advent of Parental Equality (the Irish lobby group associated with Liam O’Gogain) circa. 1993, been considering the possibility of a change to laws of joint physical custody – which gives some gauge of the lack of seriousness with which such laws are being considered.
7. In Germany, a professional court intervention model called the Cochem model, based on principles of shared parenting, is gathering strength. This German Cochem court practice model will be discussed at more length in my presentation below. In this model parents are only allowed access to the family court for parental separation and divorce after they have themselves also filed a shared post-divorce parenting plan agreed by and between both of them. The German federal minister of Justice has previously (February 2006) announced future family law reform in which “elements of the Cochem model of multi-disciplinary court orchestrated intervention” are to be integrated into the German family law. Which elements, however, are as of yet unknown. This family law reform at the federal level has, therefore, not yet materialized.
8. Malta also has some form of shared parenting presumption according to Maltese family rights organizations. As of yet, however, it is unclear what is the exact nature of their shared parenting presumption.
9. Spain introduced a new shared parenting law in mid-2005 which is regarded as wholly inadequate by Spanish family rights lobbyists. Government officials and professionals on their own initiative are attempting to introduce policies reintegrating alienated children with their alienated parents and there is a vigorous movement for change.
10. The UK under the present Labour government has, as of yet, no effective shared parenting laws in existence. In his simultaneous presentation at the Drama Conference based on a study of the British Law Commission’s research papers Robert Whiston found that court-ordered shared parenting was commonly practiced in the south part of England in the second half of the last century until it was eliminated by the Children Act 1989 (Whiston, 2009a). At present, the oppositional Conservative Party – which is expected to win the next 2009 elections – has adopted Equal Parenting Family Law Reform as part of its election program. Also some judicially-motivated efforts to introduce norms of shared parenting do exist, in spite of the family-hostile parameters of the present law and fiscal framework.
11. Luxembourg is also said to have introduced post-divorce joint physical custody legislation.
Other jurisdictions
- Australia passed a Shared Parenting Bill in the Senate in 2006 of the window dressing sort. Australia in fact is a good example of the sort of jurisdiction that repeatedly passing pretend laws that are having no real effects on keeping both parents involved in children’s lives after parental separation. And each time it is claimed that the present law proposal will be better than the last, while children of separation continue to grow up in a family-hostile environment. The same pattern can be observed in EU-countries like the UK, the Netherlands and Spain.
- In the USA several states have implemented shared parenting legislation.
6. Recent developments in family law and family courts in Belgium, the Netherlands and Germany.
Family law reform in Belgium
Belgium already had a presumption of joint legal custody in its family law since the nineties of the last century.
Since September 2006 the Belgian federal law on “bi-location” or “alternating residence” also came into effect after having passed both houses in the Belgian federal parliament. This new law additionally introduced a presumption of joint physical custody, care and residency as the norm or preferred post-divorce parenting arrangement to be ordered by the Belgian family courts. Furthermore immediate unilateral court-access for either of the divorced or separated parents in requesting for additional reinforcement orders if needed was introduced.
Contrary to common belief the Belgian family law reform of September 2006 however did not introduce a 50/50 joint physical care and residency arrangement as the fixed end-result for all divorcing or separating Belgian parents. Instead it introduced a presumption of dual location or shared residency which by law should be taken into serious consideration and thorough investigation with priority in each individual case by the Belgian family courts and judges on the request of either one of the divorcing parents separately.
In the situation where both separating parents consensually forward shared residency, care and access proposals between the two of them in the divorce and separation proceedings, the law puts the Belgian family courts and judges under the obligation to accept those mutually consented proposals as leading in the court-orders to be subsequently imposed in the divorce and separation proceedings.
In effect the wishes with regard to the post-divorce residency, care and access arrangements of either parent parties involved were thus again acknowledged and reinstated at the core of Belgian family law and family court proceedings regarding physical custody, residency and care. By law Belgian family court judges were endowed with the obligation to explicitly specify in their court-orders their decisions and provisions with regard to the imposed post-divorce residence and care arrangements in writing if they were to deviate from the presumptive and preferred bi-location or shared parenting arrangement in their court-orders.
These new Belgian law provisions have put shared parenting at the forefront of the family courts decision-making regarding the care, access and residency of the children involved, while the need and obligation imposed by law on the Belgian family courts and judges to extensively specify in writing in their imposed court-orders as to why a shared parenting or bi-location order was not imposed, opens the possibility for appeal of the courts decisions and motivations.
A further additional but underestimated new element of the Belgian family law reform is the introduction of immediate or priority access to the courts and judges on the request of either one of the parties one-sidedly. This can be activated unilaterally and individually – without the need of being represented by a lawyer at the court-session requested for – for additional reinforcement orders of the court when the court-ordered parenting arrangements were not sufficiently complied with by the other parent and when there were complaints about the other parent with regard to abiding by the specific parenting arrangements laid down by the judge in the original case residency, care and access order(s) given.
Although the law, as a federal national framework, has been in effect for only 2,5 years – and so it is too early to evaluate its effects thoroughly – first impressions are that it has contributed strongly to the Kantian appeasement between divorcing and separating parents in Belgium. This contributes to both the leading civil and family law principle of appeasement between conflicting parties as well as to the best interest of the children involved who now flourish far better under the care of the appeased but separated parents.
Family law reform in the Netherlands
In 1996 joint legal custody (in Dutch: gezamenlijk gezag) was implemented by law by the Dutch Parliament making joint legal custody the standard for post-divorce parenting in the Netherlands to oblige with EVRM Article 8 on the Right to Family Life.
However, shortly after the introduction of the law, the family courts in conjunction with the Dutch High Court neutralised the Dutch Parliament’s specific intent for a law by to keep both parents involved in children’s lives.
Perversely, the judiciary undermined Parliament’s sovereignty by stating that joint legal custody could be awarded but that it did not automatically entitle fathers to contact and access arrangements.
Over the past few years the Dutch Parliament has taken several new initiatives to introduce joint physical custody and equal parenting as the legal presumption for post-divorce parenting arrangements.
The first attempt was the legal initiative on administrative divorce (divorce without the use of a court and representing lawyers) and continued parenting, No. 29676 by parliament in 2004 (Luchtenveld, 2004), better known as the Luchtenveld-proposal [5]. It passed the Dutch House of Commons in the winter of 2005 only to be left stranded in the Dutch Senate in the summer of 2006. This however was mainly caused by the “Administrative Divorce” part of the law being contradictory to lawyers’ interests, which hit on heavy resistance with the Dutch judiciary[6].
Another new attempt for family law reform, better known as the “Donner-proposal”, was then made on the initiative of the Ministry of Justice with the Law on Continued Parenting after Separation (No. 30145). This law while it passed in the Dutch House of Commons in June 2006, on the initiative of the Dutch Socialist Party was unexpectedly altered by a constitutional majority amendment introducing equal parenting as the presumption for post-divorce parenting. On November 25th 2008 this law passed the Dutch Senate. It went into effect two days ago on January 1st 2009.
This new law has the following main positive features with regard to shared parenting arrangements and the reinforcement of parenting orders by the Dutch family courts:
• It introduces and aims to guarantee in Dutch family law the basic principle of equality for both parents and the presumption of equal parenting both before and after divorce or separation, and regardless of whether the parents were previously married or not.
• It introduces a strong incentive for parents to come up with a mutually agreed parenting plan during the separation and divorce proceedings.
• Adding new but complicated reinforcement possibilities to the toolbox of options available to judges to ensure compliance with court-ordered parenting arrangements.
However, the law also has some distinctly negative features for shared parenting as it once again re-opens the possibilities for the family courts to deviate from the Parliamentary default presumption of joint legal custody. This could give rise to new ways and new reasons for a court to exclude a father from parenting his children. For a more detailed account of the features in the new Dutch family law on parenting after divorce however I further refer to the Appendix A with this presentation.
Reforms in Germany – The Cochem court-practice model
Several years ago a family court judge Jurgen Rudolph – based in the German regional family court of Cochem was confronted time and again with two equally capable parents. Both were forced to fight each other – almost to the death – in adversarial court proceedings. His radical solution will be detailed later in this paper.
Also in Germany a post-divorce presumption of joint legal custody was already in effect in family law since 1998, when several years ago the family court judge Jurgen Rudolph (Rudolph, 2007) – residing at the German regional family court of the city and district of Cochem – in his courtroom bench was confronted with capable parents fighting each other with the help of their lawyers (and to the detriment of their children) over post-divorce arrangements concerning the residency, care and access over their children and demanding from him as the judge to decide in favour of either of them. Parents and lawyers from both sides seemed to be only involved in painting their adversarial ‘opponents’ as black and incapable as possible during the divorce proceedings in the family court.
The position family court Judge Jurgen Rudolph took in this was that he considered post-divorce physical custody arrangements between principally fit and capable parents not to be a standard-decision for the family court and himself as the family judge to make and decide on by default over the heads of either one of the parents. On the basis of the lawfully existing care-obligation in Germany for both parents to care for their children the making of physical custody arrangements over their children had by default to be considered primarily as a matter of responsibility for both the divorcing parents themselves to decide on in the first place.
Resulting from the in-fights between parents and their lawyers taking place in adversarial divorce proceedings, the regional family court of Cochem then experimented by changing its family court practises. In the new family court practice divorcing parents were strongly encouraged by the court to first come up themselves with a mutually and consensually agreed “parenting plan” for the residency, care and access to and over their children, as a mandatory precondition before being able to enter and finalise their divorce settlements in the Cochem family court.
As the parents now needed to come up with a mutually agreed parenting plan or parenting arrangement proposal, this mandatory demand of the court both not only resulted in a reinstatement of the equal level playing field and cooperation between the parents looking for divorce (instead of the previous court practises magnifying the differences and conflicts between the parents). But equally important, it also lead to a complete practise overhaul within the professions involved in the divorce proceedings in the family court.
Instead of aggravating the parents in their conflict, all professions, i.e. lawyers, social workers, youth welfare workers, etc., began cooperating with each other in order to offer mediatory and other support services and help to the divorcing parents who were in demand of support in making the parenting plan needed in order to finalise their divorce proceedings. In time, the cooperation between professionals evolved from cooperation on the individual case levels to a more structured network cooperation of the involved professions around the Cochem family court.
These changes in Cochem court practises and the resulting changes in practises by the surrounding professionals in the meantime have earned wide recognition in Germany and are nationally referred to in Germany as the Cochem court practises (in German: Cochemer Praxis) or the Cochem model (in German: Cochemer Modell). They are now also taken into evaluation and consideration in a future planned reform of family law by the German federal ministry of justice in Berlin.
Comparing Belgium, the Netherlands and Germany
The separate developments in these three European countries are interesting because of their convergence. In Belgium and the Netherlands developments have started top-down so to speak from the national or federal political-legislational level with the introduction of a new family law creating a national framework and new guidelines for the functioning of the family courts. While in Germany these same developments started not top-down but bottom-up from the family courts themselves experimenting with less adversarial proceedings and court practises regarding post-divorce residency, care and access arrangements and orders.
Of the law reforms in these three European countries the Belgian law reform on bi-location is to be regarded as the most clear-cut in its choice for shared parenting. The family law developments in the three European countries discussed however all share in their emphasis a distinctive shift towards implementing the concept of shared parenting and restoring an equal level playing field between both divorcing parents in family law and/or family court practises as opposed to the previous mother-only single parenting presumption that has dominated family law and family court practises in the countries of the European Union for so long.
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