The enactment of the Children Act 1989 brings to an end one major piece of family law reform in which the Law Commission played a leading role. The publication of the Commission's discussion paper on the Ground for Divorce in 1988 is a first stage in an equally fundamental review, the outcome of which must have profound implications for many aspects of family law. In publishing its Working Paper on Domestic Violence and Occupation of the Family Home the Commission seems to have acted in the belief that they were addressing a discrete topic which could usefully be considered in isolation from some more fundamental issues. Perhaps this belief explains why the Working Paper is in some respects flawed. The aim of the Law Commission was not to propose major changes in the present law as to domestic violence and occupation of the family home, but rather to put forward a system of unified remedies, to produce 'a single set of remedies which could be made available in all courts and all family proceedings'.2 Under the existing scheme, jurisdiction is divided between the High Court, county courts and magistrates' courts, and is derived from several different pieces of legislation; so there is evident fragmentation which quite properly attracted the Commission's attention. It is important to note two features of the present law. First, in the High Court and the county courts, remedies for domestic violence and the regulation of the occupation of the family home are run together. Jurisdiction rests on the Matrimonial Homes Act 1983 and the Domestic Violence and Matrimonial Proceedings Act 1976, and in consequence of the decision of the House of Lords in Richards v Richards3 the criteria in section 1(3) of the 1983 Act are of general relevance. In the magistrates' courts, the jurisdiction under the Domestic Proceedings and Magistrates' Courts Act 1978 is violence based. This prompted the Law Commission, in considering a unified scheme, to suggest the enlargement of the magistrates' jurisdiction. Second, under the Domestic Violence and Matrimonial Proceedings Act 1976, the same remedies are available in the county court to cohabitees as are available to spouses.4 As a result, the Working Paper frequently addressed the position of both without distinguishing between them. However, it then had to ask whether, under a unified system, magistrates should have the power to regulate, enforce or grant rights of occupation in the case of cohabitees.5 The Commission's concern to create a unified system of remedies obscures the policy issues underlying some key distinctions. One is the distinction between, on the one hand, cases of violence and threatened violence and, on the other, cases where a marriage is in the process of breaking down. Violence needs an urgent and strong response, whereas the question of occupation of the family home on relationship breakdown lacks that urgency, and raises quite different policy issues. Unified treatment of the occupation rights of spouses
Read full abstract