1
Fair Work (Transitional Provisions and Consequential Amendments) Act 2009
Sch. 3, Item 20A(4) - Application to extend default period for agreement-based transitional
instruments
Finance Sector Union of Australia
(AG2023/3963)
Banking finance and insurance industry
DEPUTY PRESIDENT WRIGHT
DEPUTY PRESIDENT SLEVIN
DEPUTY PRESIDENT ROBERTS
SYDNEY, 5 DECEMBER 2023
Application to extend the default period for various agreements with franchises of the Bendigo
and Adelaide Bank
[1] The Finance Sector Union (FSU) has applied, pursuant to item 20A(4) of Sch 3 to the
Fair Work (Transitional Provisions and Consequential Amendments) Act 2009 (Cth)
(Transitional Act), to extend the default period for 101 agreements listed in Schedule 1 of this
decision (Agreements). The Agreements were made under the Workplace Relations Act 1996
(Cth) and are agreement-based transitional instruments to which item 20A applies.
[2] The application seeks to extend the Agreements for a period of 12 months, until 6
December 2024.
[3] The employers covered by the Agreements are, for the most part, small community
banks which are run by a volunteer board of directors. The banks operate on a profit-with-
purpose, social enterprise model in which all profits are returned to the community in which
they operate. Many of them are in remote and regional communities around the country. Each
of the employers is a franchise of the Bendigo and Adelaide Bank Ltd (BABL).
[4] BABL has been appointed as a bargaining representative for each of the 101 employers
to whom the Agreements that are the subject of the present application apply. They are also a
bargaining representative for a further 51 employers who are also covered by agreements which
are not the subject of this application. BABL has been appointed as a bargaining representative
for these employers for the purpose of negotiating a Cooperative Workplace Agreement to
replace all 162 of these agreements.
[5] Item 20A of Sch 3 to the Transitional Act provides for the automatic sunsetting of
agreement-based transitional instruments by the end of the default period on 6 December 2023,
subject to the capacity to apply to the Commission for an extension of that period for up to four
years in prescribed circumstances. The agreements to which these provisions apply are
[2023] FWCFB 237
DECISION
AUSTRALIA FairWork Commission
https://www.fwc.gov.au/documents/decisionssigned/pdf/2023fwcfb237.pdf
[2023] FWCFB 237
2
commonly known as zombie agreements. The main features of item 20A of Sch 3 are described
in detail in the Full Bench decision in Suncoast Scaffold Pty Ltd1.
[6] Relevantly, when an application is made under subitem (4) of item 20A of Sch 3 to the
Transitional Act, the Commission is required under subitem (6) to extend the default period if
the Commission is satisfied that subitem (7), (8) or (9) applies and it is otherwise appropriate
in the circumstances to do so.
[7] The application is advanced on the basis that subitems (7) applies and it is otherwise
appropriate in the circumstances to extend the default period.
[8] The Full Bench in ISS Health Services Pty Ltd2 described the three requirements for
subitem (7) to apply. The first is the requirement that the application is made at or after the
‘notification time’ for a proposed agreement as defined in s.173(2) of the Fair Work Act 2009
(FW Act). The second is that the proposed agreement must cover the same or substantially the
same group of employees as the zombie agreement. The Full Bench stated that this could be
established by comparing the Notice of Employee Representational Rights (NERR) for the
proposed agreement to the coverage clause of the zombie agreement. The third is that
bargaining for the proposed agreement must be occurring.
[9] The parties advised the Commission that between 18 and 27 September 2023, BABL
issued NERRs on behalf of the 162 companies to employees of those companies notifying of
the intention of the employers to negotiate a new cooperative workplace agreement. A copy of
each of the NERRs sent to the employees of the 101 companies affected by this application was
provided to the Commission.
[10] After the NERRs were issued, bargaining commenced with the FSU and the Australian
Municipal, Administrative, Clerical and Services Union (ASU).
[11] The NERRs are in identical terms. They each refer to an enterprise agreement covering
employees employed in lending, customer service, marketing, community engagement,
administrative and cleaning roles that fall within the classifications in the proposed agreement.
[12] The parties advised that the Agreements were based on two versions of a template
document and that a small number of employers may have used the earlier version with only
some slight variations but with ‘no material difference to the substantive terms of the
agreement.’ The BABL submitted that the scope of the Agreements was broadly similar, with
some differences in the indicative roles specified. The Agreements include a definition of
‘employees’ at clause 2.1 that refers to ‘all clerical employees who perform work that falls
within the grades specified in the agreement.’ The employee grades are set out at clause 8. The
following is a typical description of the employee grades. It is taken from the Merbein
Community Bank Collective Agreement:
[2023] FWCFB 237
3
(a) Grade 1
When performing routine clerical work including the work of Office Services Clerk,
Imaging Officer, Basic Data Entry and other work of similar work nature.
(b) Grade 2
When performing any of the work in Grade 1 and the work of Cheque Clearing Officer,
Customer Account Services Officer and other work of a similar nature.
(c) Grade 3
When performing any of the work in Grades 1 and 2 and the work of card Disputes
Officer, Banking Consultant, Card Operations Officer, Customer Service Officer, Loan
Services Officer, Treasury Operations Officer and other work of a similar nature.
(d) Grade 4
When performing any of the work in Grades 1, 2 and 3 and the work of Customer &
Community Officer, Customer Service Supervisor, Customer Relationship Officer,
Lending Officer, Team Leader, Payroll Officer, and other work of a similar nature.
[13] The Commission was advised that the parties have engaged in bargaining meetings on
4, 18 October and 1 November 2023. Further bargaining meetings were scheduled to take place
on 16 and 29 November and 13 December 2023. BABL advised that it anticipated that a new
agreement would be put to a vote of the employees in January 2024.
[14] The uncontested material provided by the parties is sufficient to allow us to form a view
as to the requirements of subitem (7). First, the NERR shows that the companies agreed to
bargain or initiated bargaining in September 2023 and that there was a notification time for a
proposed agreement. The application for extension of the Agreements was filed on 30 October
2023 after the notification time for a proposed agreement. Second, the group of employees
covered by the proposed agreement, as described in the NERRs, is substantially the same as the
coverage of the Agreements. Finally, the parties agree that bargaining has commenced and is
currently occurring. On this basis, we are satisfied that subitem (7) applies.
[15] As subitem (7) is met, subitem 6(a) requires a consideration of whether it is otherwise
appropriate in the circumstances to extend the default period. In ISS Health Services, the Full
Bench considered it appropriate to do so where the parties sought time to negotiate a
replacement agreement and are not simply seeking to extend an agreement for the maximum
period for the sake of convenience. The Full Bench also took into account that while the zombie
agreement remained in place, the employees would be better off overall than if the modern
award applied.
[16] The FSU submitted that it is appropriate to extend the default period in all of the
circumstances. It contended that the Agreements contain some provisions which are beneficial
to the employees to whom they apply and superior to the provisions of the Banking, Finance
and Insurance Industry Award 2020 (Award) which would apply to employees if the default
period is not extended. These include clauses relating to redundancy pay and laundry allowance.
The FSU said it was appropriate to extend the default period for the Agreements because it was
highly unlikely that bargaining would be concluded before 6 December 2023. The FSU said in
[2023] FWCFB 237
4
circumstances where parties are negotiating a new multi-enterprise agreement in good faith it
is appropriate to extend the default period to allow negotiations to run their course. The ASU
supported the FSU’s application to extend the default periods for the Agreements.
[17] BABL submitted that in the time available it was not possible to obtain instructions from
each of the 101 employer respondents to the application. However, BABL said that given the
time that the zombie agreements had been in operation it was likely that employees would be
better off if the Award applied rather than the Agreements. They referred to various clauses in
the Award that were said to be superior to those in the Agreements. These included minimum
engagement periods for casuals, higher penalty rates and more favourable overtime provisions
(depending on when overtime is worked). BABL said that each company covered by a zombie
agreement had given them an assurance (that would also shortly be given to employees), that
the redundancy and uniform and laundry allowance provisions of the Agreements would
continue to be paid in the period between the termination of the Agreements and the
commencement of a new cooperative agreement. BABL submitted that if the Commission were
minded to grant an extension, it should be for a shorter period of 3 months rather than the 12-
month period sought by the Applicant.
[18] We are satisfied that it is appropriate in all of the circumstances to extend the default
period for the Agreements. This is not a case where the parties were seeking the maximum
extension as a matter of convenience. Rather, both sides are actively bargaining for a
replacement instrument. We accept that, particularly given the number of agreements involved
here, and the objective of consolidating them into a single multi-enterprise agreement,
bargaining will not be concluded, and a new agreement approved, for some time. The parties
are committed to negotiating a replacement agreement and need time beyond 6 December 2023
to do so.
[19] As we are satisfied that subitem 6(a) applies we are required to extend the default period.
As the Full Bench observed in Suncoast Scaffolding Pty Ltd3 the Commission has a discretion
as to the length of the extension, subject to the limitation that the extension cannot be for more
than four years. The nature of the discretion is such that we are not bound to grant the period of
extension sought in the application.4 The extension sought by the FSU in the application was
12 months.
[20] In ISS Health Services Pty Ltd the Full Bench ordered an extension of 12 months in
circumstances where subitem (7) applied. The Full Bench considered this sufficient time for a
replacement agreement to be finalised in circumstances where there was some complexity in
the bargaining, including issues of contested scope. The Full Bench noted that should the parties
require assistance to finalise an agreement then s.240 of the FW Act provides access to the
Commission to resolve any disputes that arise. The Full Bench noted that the additional 12
months amounted to an 18-month period in which to conclude an agreement, as the NERR in
that matter had been issued in June 2023.
[21] We have had regard to the current status of the bargaining process. We note also that
the proposed agreement will cover a group of some 592 employees, the 101 mostly small
employer respondents to this application and a further 51 employers and their employees all
currently covered by separate agreements. We take into account the fact that the employees and
employers who will be covered by the proposed agreement are spread across a wide range of
[2023] FWCFB 237
5
areas including many remote and regional areas. These are factors which can make the logistics
of bargaining more challenging. We note the submission of BABL that the employers involved
are not large and sophisticated employers and, in most instances, lack the size, skill and
resources to bargain for a single enterprise agreement. The employers will no doubt be assisted
by the resources and expertise of BABL as a nominated bargaining representative, just as the
employees will draw on the expertise of experienced union bargaining representatives.
However, the task of consolidating the existing arrangements applying to multiple employers
in multiple workplaces into a single multi-enterprise agreement will take some time. The parties
accepted that the task would not be completed before December 2023.
[22] We consider that the inferior conditions of employment in the Agreements identified by
BABL weigh against extending the default period by the full 12-month period sought by the
Applicant.
[23] In all the circumstances we propose to extend the default period for this agreement by a
period of 6 months which should, in our view, allow sufficient time for the parties to finalise a
replacement enterprise agreement.
An order extending the default period for the Agreement by 6 months to 6 June 2024 will be
published separately. The Agreements are published, in accordance with subitem (10A)(c), on
the Fair Work Commission’s website and can be accessed through the hyperlinks in Schedule
1 to this decision.
DEPUTY PRESIDENT
Printed by authority of the Commonwealth Government Printer
PR769032
OF THE FAIR WORK L MISSION THE SEA
[2023] FWCFB 237
6
Schedule 1
Enterprise Agreement Name Approval
date
Adelaide Plains Financial Services Ltd Community Bank Collective Agreement 22/04/2009
AGNES WATER / 1770 COMMUNITY ENTERPRISES LIMITED Employee Collective
Agreement
15/05/2008
Adelong And District Financial Services Ltd Community Bank Collective Agreement 3/06/2009
Apollo Bay & District Community Enterprises Limited Employee Collective Agreement 31/03/2008
Augusta And Districts Community Financial Services Ltd Community Bank Collective
Agreement
2/06/2009
Avoca District Co-Operative Ltd Community Bank Collective Agreement 22/04/2009
Babinda Community Financial Services Limited Community Bank Collective Agreement 22/04/2009
Balnarring & District Community Services Limited Employee Collective Agreement 31/03/2008
Beaufort Community Financial Services Limited Community Bank Collective Agreement 22/04/2009
Berowra And District Financial Services Limited Employee Collective Agreement 7/05/2009
Bexley Financial Services Limited Community Bank Collective Agreement 7/05/2009
Boorowa Community Financial Services Limited Community Bank Collective Agreement 19/05/2009
Byford And Districts Community Development Services Employee Collective Agreement 22/04/2009
Carrum Downs Financial Services Limted Community Bank Collective Agreement 1/05/2009
Caulfield Park Community Financial Services Limited Community Bank Collective
Agreement
29/05/2009
Clarence Valley Community Financial Services Limited Community Bank Collective
Agreement
Approx 2009
Cobden And Districts Community Finance Limited Community Bank Collective
Agreement
6/05/2009
Coleraine And District Financial Services Limited Community Bank Collective Agreement 23/04/2009
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https://www.fwc.gov.au/documents/agreements/approved/ac329266.pdf
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[2023] FWCFB 237
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Creswick And District Financial Services Limited Community Bank Collective Agreement 22/04/2009
Cummins District Financial Services Limited Community Bank Collective Agreement 22/04/2009
Dancoor Community Finances Limited Community Bank Collective Agreement 12/05/2009
Dimboola And District Financial Services Limited Community Bank Collective Agreement 23/04/2009
Dingley Village Financial Services Limited Community Bank Collective Agreement 27/04/2009
Donnybrook Capel Districts Community Financial Services Limited Community Bank
Collective Agreement
2/06/2009
Drouin And District Community Financial Services Limited Community Bank Collective
Agreement
22/04/2009
East Gosford And Districts Financial Services Limited Community Bank Collective
Agreement
22/04/2009
East Keilor Community Financial Services Limited Community Bank Collective
Agreement
6/05/2009
Edenhope And District Financial Services Limited Community Bank Collective Agreement 23/04/2009
Elwood Community Financial Services Limited Community Bank Collective Agreement 29/05/2009
North Epping Financial Services Limited Community Bank Collective Agreement 7/05/2009
Ettalong Beach Financial Services Community Bank Collective Agreement 22/04/2009
Fairy Meadow Community Financial Services Limited Community Bank Collective
Agreement
27/05/2009
Fleurieu Community Enterprises Limited Community Bank Collective Agreement 22/04/2009
Hervey Bay And District Financial Services Limited Community Bank Collective
Agreement
22/04/2009
Freycinet Coast Financial Services Limited Employee Collective Agreement 11/02/2008
Gilgandra Financial Services Limited Community Bank Collective Agreement 22/04/2009
Gingin Districts Community Financial Services Limited Community Bank Collective
Agreement
12/05/2009
Goodwood/Highgate Community Financial Services Limited Community Bank Collective
Agreement
22/04/2009
Goomalling And Districts Community Financial Services Limited Community Bank
Collective Agreement
12/05/2009
Great Southern Community Financial Services Collective Agreement 26/05/2009
Harbord Financial Services Limited Community Bank Collective Agreement 7/05/2009
East Ivanhoe Community Corporation Limited Community Bank Collective Agreement 29/04/2009
Henty Community Financial Services Ltd Community Bank Collective Agreement 9/06/2009
Heyfield And District Community Financial Services Limited Community Bank Collective
Agreement
22/04/2009
Highett Community Financial Services Limited Community Bank Collective Agreement 29/05/2009
Homebush Financial Services Ltd Community Bank Collective Agreement 19/05/2009
Inner West Community Enterprises Ltd Employee Collective Agreement 18/03/2009
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[2023] FWCFB 237
8
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Kingsway Community Financial Services Limited Community Bank Collective Agreement 28/04/2009
Fern Tree Gully And Rowville Financial Services Ltd Community Bank Collective
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Mansfield And District Community Enterprises Limited Community Bank Collective
Agreement
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Maroondah Community Enterprises Limited Community Bank Collective Agreement 7/05/2009
Merbein District Community Financial Services Limited Community Bank Collective
Agreement
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Midwest Community Enterprises Limited Community Bank Collective Agreement 1/05/2009
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Agreement
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Mt Evelyn And Districts Financial Services Limited Community Bank Collective
Agreement
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Agreement
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Narrandera District Investments Limited Community Bank Collective Agreement 9/06/2009
Nightcliff Community Enterprises Limited Employee Collective Agreement 25/08/2008
Wallan And District Financial Services Limited Community Bank Collective Agreement 12/05/2009
North Central Financial Services Limited Community Bank Collective Agreement 11/05/2009
North Perth Community Financial Services Employee Collective Agreement 12/05/2009
North Ryde Community Finance Limited Community Bank Collective Agreement 26/05/2009
Oak Flats Financial Services Limited Employee Collective Agreement 26/05/2009
Community Financial Services Victoria Limited Community Bank Collective
Agreement
8/04/2009
Paradise Point Financial Services Limited Community Bank Collective Agreement 22/04/2009
Parkdale/Mentone East Community Financial Services Limited Community Bank
Collective Agreement
29/05/2009
Pinewood Community Financial Services Limited Community Bank Collective Agreement 29/04/2009
Pingelly Brookton Community Financial Services Limited Collective Agreement 26/05/2009
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22/04/2009
Port Lincoln Community Enterprises Limited Community Bank Collective Agreement 22/04/2009
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[2023] FWCFB 237
9
Roleystone-Karragullen Financial Services Limited Community Bank Collective
Agreement
22/04/2009
Rushworth And District Financial Services Limited Community Bank Collective
Agreement
8/05/2009
Rye And District Community Financial Services Limited Community Bank Collective
Agreement
1/05/2009
San Remo District Financial Services Limited Community Bank Collective Agreement 22/04/2009
Sandringham Community Financial Services Limited Community Bank Collective
Agreement
29/05/2009
South Burdekin Community Financial Services Limited Community Bank Collective
Agreement
22/04/2009
Yarraman Financial Services Limited Community Bank Collective Agreement 22/04/2009
Stonnington Community Financial Services Ltd Community Bank Collective Agreement 7/04/2009
Strathmore Community Services Limited Community Bank Collective Agreement 13/05/2009
Tongala And District Financial Services Limited Community Bank Collective Agreement 8/05/2009
Toodyay And Districts Community Financial Services Limited Community Bank
Collective Agreement
12/05/2009
Tumbarumba Financial Services Limited Community Bank Collective Agreement 9/06/2009
Upper Yarra Community Enterprise Ltd Community Bank Collective Agreement 26/05/2009
Valley Community Financial Services Ltd Community Bank Collective Agreement 8/05/2009
Wandin Seville Financial Services Limited Community Bank Collective Agreement 19/05/2009
Hastings & District Community Enterprises Limited Employee Collective Agreement 16/05/2008
Blackburn District Financial Services Limited Community Bank Collective
Agreement
29/04/2009
Woodstock Financial Services Limited Community Bank Collective Agreement 19/05/2009
Wydcom Financial Services Limited Community Bank Collective Agreement 26/05/2009
Wyong Town Financial Services Limited Community Bank Collective Agreement 22/04/2009
York And Districts Community Financial Services Limited Community Bank Collective
Agreement
12/05/2009
1 [2023] FWCFB 105.
2 [2023] FWCFB 122 at [4].
3 [2023] FWCFB 105 at [18].
4 See Suncoast Scaffolding Pty Ltd id and Applications by APESMA [2023] FWCFB 137 at [31].
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https://www.fwc.gov.au/documents/decisionssigned/pdf/2023fwcfb105.pdf
https://www.fwc.gov.au/documents/decisionssigned/pdf/2023fwcfb122.pdf
https://www.fwc.gov.au/documents/decisionssigned/pdf/2023fwcfb105.pdf
https://www.fwc.gov.au/documents/decisionssigned/pdf/2023fwcfb137.pdf
