The SMSF: a Mechanism for Self-Directed Member Investment
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The SMSF: a mechanism for self-directed member investment by Christopher May Faculty of Law Submitted in fulfilment of the requirements for the Degree of Doctor of Philosophy University of Tasmania, March 2017 Statements This thesis contains no material which has previously been submitted for a degree or diploma by the University of Tasmania or other institution, except by way of general background and acknowledged in the thesis. To the best of the author’s knowledge this thesis contains no material that has been previously published or written by another person, except where acknowledged in the thesis. This thesis may be loaned or made available for limited copying, subject to the Copyright Act 1968 (Cth). This thesis reflects the law as at 1 February 2017. --------------------- Chris May Abstract Retirement savings in Australia held through regulated superannuation are substantial and projected to exceed a staggering $9 trillion by 2040.1 The sheer magnitude of assets held in this custody underscores the need for scrutiny of its governing laws. As superannuation law is derived from a number of sources, it is an unwieldly task to address all aspects in a single piece of research. The concern of this thesis is the legal framework adopted by the self- managed superannuation fund (SMSF), a particular type of regulated superannuation fund operating in Australia. In addressing the subject matter, significant attention is given to context, seeking to capture the substance of the SMSF, from which the suitability of its adopted trust structure is evaluated. In this regard, at a most foundational level the essence of the SMSF is a vehicle to hold superannuation savings. Accordingly, to truly understand the nature of the SMSF it is instructive to trace its roots through broader historical analysis of superannuation in Australia. Along with a gradual development to form a component of retirement incomes policy, this thesis reveals a theme that beyond the element of compulsion, the existence of regulated superannuation is tied to the co-dependencies of taxation concessions and regulatory constraint. For the SMSF this co-dependency is particularly significant, with regulation adopting more of a compliance, rather than prudential flavour consistent with high levels of member engagement and involvement in fund decision making.2 The existence of taxation concessions to encourage participation, combined with the fact that superannuation was initially regulated through the taxation power vested in the Commonwealth,3 suggests that predecessors of the SMSF are identifiable in historic taxation legislation. Beyond the influence of taxation, however, the ultimate driver for their separate recognition has proven to be the introduction of prudential regulation.4 This reflected a “one-size-fits-all” legislative approach, despite the limited role that member assurance plays for the SMSF, or its roots as a tax structure operating subject to statutory constraint. 1 Commonwealth of Australia, Financial System Inquiry Interim Report (2014) 2-84. The precise rate of future growth in superannuation is difficult to estimate. Some estimates have factored in higher rates of growth that suggest superannuation fund assets would exceed $12 trillion by the late 2030s. 2 Commonwealth of Australia, Super System Review Final Report, Part Two: Recommendation Packages (2010) Ch 1, 6. 3 Commonwealth of Australia Constitution Act 1900 (Cth) s 51(ii). 4 This regime has been based on the Commonwealth’s constitutional powers pertaining to old age pension and corporations. Refer Commonwealth of Australia Constitution Act 1900 (Cth) ss 51(xxiii), (xx). Adopting a member-focussed regulatory approach,5 this thesis ultimately captures the substance of the SMSF as a mechanism for self-directed member investment, encouraged through taxation concessions but limited by restrictions prescribed by the Superannuation Industry (Supervision) Act 1993 (Cth) (SISA). From this springboard, it is possible to judiciously consider the suitability of its legal framework, albeit one that is reliant on a trust in need of “stretching” to achieve what has been asked of it. The thesis accordingly deconstructs the trust in this context, targeting difficulties in translating fiduciary and other trust law duties to the substance of the SMSF. The analysis reveals a need for positive steps to resolve the strain between form and substance. This thesis contains primary and secondary alternatives to redress the unsuitability of the trust, implementation of which will be hostage to the capacity and willingness of the legislature to embrace reform. As a compromise of “tinkering” around the edges, the secondary alternative seeks to retain the trust, but to improve alignment with the SMSF’s substance through further legislative intervention. There is a sense of resignation with this recommendation, to do the best with a framework that is fundamentally inappropriate for its purpose. The preferred approach is to fully endorse the SMSF’s substance through the adoption of a purely legislative-based existence. Such a significant change would need extensive consultation and open-mindedness, enabling the issue to ascend beyond the tendency for superannuation reform to be stalled in a quagmire of competing ideologies, with different interest groups merely seeking to further their own position. 5 For endorsement of this approach refer Commonwealth of Australia, Super System Review Final Report, Part Two: Recommendation Packages (2010) Ch 1, 5-9. Acknowledgements I am extremely appreciative of the significant assistance and guidance of my supervisor, Professor Gino Dal Pont. I have enjoyed our regular discussions spanning both superannuation and taxation law, along with his general support and encouragement. I am grateful to the University of Tasmania Law School for providing the facilities to assist me in the completion of this thesis, with particular thanks to the staff of the Law Library and for the funding I received to attend a superannuation related conference. I would like to acknowledge and thank my partner and more extended family for their patience while I have been completing this thesis. It has been a privilege to be given the opportunity to undertake a PhD. TABLE OF CONTENTS List of acronyms…….…………………………………………………………………iv PART ONE – CONTEXT IDENTIFIED CHAPTER ONE: INTRODUCTION 1.1 Basis for the research..………………………………………..……………..... 2 1.2 Objectives………………………………………………...……………………4 1.3 Methodology.……...……………………………………………..…………… 5 1.4 Structure………...………………………………………………...…………... 6 1.5 Scope of the research...……………………………………………...................7 1.6 Existing literature ...……………………………………………….………...... 9 CHAPTER TWO: SUPERANNUATION EXPLAINED 2.1 Introduction…………………………………………………………………..13 2.2 “Superannuation” defined.…………………………………………………...14 2.3 “Superannuation fund” defined……………………………………………… 17 2.4 The history of superannuation in Australia………………………………….. 30 2.4.1 A component of a retirement income system…………….………………... 30 2.4.2 Superannuation and taxation………………………………………..............45 2.4.3 Superannuation and regulation…………………………………………….. 65 2.5 Synthesis……………………………………………………………………...79 PART TWO – CONTEXT UNRAVELLED CHAPTER THREE: RISE OF THE SMSF 3.1 Introduction………………………………………………………………….. 82 3.2 The history of SMSFs in Australia………………………………………….. 83 3.2.1 Early taxation law………………………………………………………….. 83 3.2.2 Excluded superannuation funds under the OSSA………………………….. 86 3.2.3 Excluded superannuation funds under the SISA…………………………... 87 3.2.4 SMSFs under the SISA…………………………………………………….. 89 3.2.5 Review of SMSFs under the SISA………………………………………… 98 3.3 SMSF statistics…………………………………………………………… ...103 3.3.1 Number of funds………………………………………………………….. 103 3.3.2 Membership………………………………………………………………. 109 3.3.3 Average assets per account…………………………………………… …..110 3.3.4 Asset allocation………………………………………………………… …112 3.4 Synthesis…………………………………………………………………….114 i CHAPTER 4: DECONSTRUCTING THE SMSF TRUST 4.1 Introduction………………………………………………………………… 117 4.2 The SMSF in context ……………………………………………………….119 4.2.1 The trust framework……………………………………………………….119 4.2.2 Erosion of the trust framework…………………………………………… 122 4.2.3 Difficulty in abandoning the trust framework……………………………. 134 4.2.4 Consequences for the SMSF……………………………………………… 135 4.3 The SMSF and fiduciary duties…………………………………………….. 138 4.3.1 Presumed fiduciary duties…………………………………………………138 4.3.2 A duties-based approach………………………………………………….. 139 4.3.3 Duty to avoid conflict…………………………………………………….. 141 4.3.4 Duty not to profit…………………………………………………………. 143 4.3.5 Consequences for the SMSF....…………………………………………… 149 4.4 The SMSF and trust law duties……………………………………………...152 4.4.1 The interaction of trust law and the SISA…………………………………152 4.4.2 Duties concerning conduct………………………………………………...160 4.4.3 Duties concerning management…………………………………………... 180 4.4.4 Duties concerning investment……………………………………………..188 4.4.5 Consequences for the SMSF……………………………………………… 195 4.5 Synthesis…………………………………………………………………….197 PART THREE – CONTEXT REASSEMBLED CHAPTER FIVE: WORKING WITH THE TRUST 5.1 Introduction………………………………………………………………… 199 5.2 Recognising substance – a member focussed approach to regulation……....200 5.2.1 Adoption of a choice architecture………………………………………… 200 5.2.2 SMSF principles within the choice architecture………………………….. 203 5.2.3 The trust structure endures………………………………………………...210 5.2.4 Consequences for the SMSF……………………………………………… 212 5.3 Accommodating substance – working with the trust framework…………... 214 5.3.1 A trust