
© Copyright Paul Foley Law June 2024: All Rights Reserved. For advice and drafting in order to comply with the Charities (Amendment) Act 2024 referred to below, please contact the firm at paul@paulfoleylaw.ie
The changes to the Charities Act 2009 (Principal Act) that arise from the Charities (Amendment) Act 2024 (New Act) will require ministerial commencement orders before they can come into operation.
This Article covers the main amendments (which are substantial) from the perspective of an affected charitable organisation and its trustees.
Text reproduced from the Principal Act is in italics and text reproduced from the New Act setting out the changes, are in italics and shaded blue.
Amendment 4 in the New Act
What constitutes charitable purpose is substantially clarified. This will now include ‘the advancement of human rights’ as a new charitable purpose under section 3(1)(q)of the Principal Act.
(Amendment 7 in the New Act)
Section 39 of the Principal Act, is substantially amended by Amendment 7.
S39(5) Subject to subsection (6), an application under this section shall:Section 39(5)(l) of the Principal Act updates the reference to ‘vulnerable people’ in line with the National Vetting Bureau (Children and Vulnerable Persons) Act 2012. Section 39(6) is deleted.
Amendment 7 inserts new sections 39(6A) & 39(6B) into the Principal Act, enabling the Authority to request additional information, where it is not satisfied that the requirements set out in section 39(5) are met. The text reads:
S39(6A) Where the Authority considers that an application does not satisfy the requirements of subsection (5), the Authority may by notice in writing require the applicant to provide it with specified information or documents, not later than 21 days after the date of the notice, or such longer period as the Authority may specify.Amendment 7 (further additions) inserts sections 11A, 11B and 11C into section 39(11) of the Principal Act:
S39(11A) A registered charitable organisation shall, as soon as may be, notify the Authority in writing where:Amendment 8 in the New Act
Section 40 relates to organisations deemed registered by reason of having a CHY number prior to the formation of the register under the Principal Act. Section 40(2) as amended, enables the Authority to require ‘deemed registered’ charities to supply the same information that would be required, if they were an applicant under section 39 of the Principal Act.
(Amendment 9 in the New Act)
Section 42 of the Principal Act is supplemented by the insertion of an important new section 42A.
S42A(1) A registered charitable organisation shall make an application to the Authority in order to: (a) change its charitable purpose, or (b) amend a specified clause.(a) the reasons for the decision, and
(b) the entitlement under section 45(1B) to appeal the decision.
S42A(5) A charitable organisation that is a body corporate that contravenes subsection (3) shall be guilty of an offence.Amendment 10 in the New Act relates to section 43 of the Principal Act. The amendment provides for additional circumstances where an organisation registered under section 39 of the Principal Act may be removed from the register. Amongst the changes, the new sections 43(2A) and 43(2B) are important:
S43(2A) Where a charitable organisation fails to comply with a condition attached to the registration under section 39(9)(b), the Authority shall, on the specified date, remove from the register all of the information entered in relation to that organisation, and that organisation shall, thereupon, cease to be registered.Amendment 12 (Removal notice) in the New Act provide for additional circumstances, set out in a new section 44A, where an organisation registered under section 40 of the Principal Act may be removed from the register. They are not reproduced here.
Amendment 15 in the New Act updates in several places, section 46of the Principal Act. For example section 46(2) is amended and is reproduced below.
S46(2) A person (other than a registered charitable organisation or a person who is acting on behalf of a registered charitable organisation) who, in any notice, advertisement, promotional literature or any other published material, describes himself, herself or itself or his, her or its activities, in such terms as would cause members of the public to reasonably believe that he, she or it is a charitable organisation shall, subject to subsection (6), be guilty of an offence.Section 46(7) as amended (below), will require greater uniformity in respect of the information to be included in all public documents and other publications issued by charities. The text will read (with 46(7)(b) being deleted) as follows:
S46(7) A registered charitable organisation shall, in all public documents and such other publications as may be prescribed, including on television or the internet, state in legible characters: (a) that it is a registered charitable organisation, (b) deleted, (c) the name of the charitable organisation as it appears on the register, (d) its registration number, and (e) such other information, including the names of the charity trustees and the address of its principal office, as may be prescribed.Amendment 16 in the New Act updates section 47 of the Principal Act and clarifies the requirement for all charities to keep proper books of account.
Section 47(11) which says: This section does not apply to charitable organisations that are companies, is deleted and a new section 47(12) is added as follows:
S47(12) This section shall apply to a charitable organisation that is a company from the commencement of the first financial year of the company that occurs after the coming into operation of section 16 of the Charities (Amendment) Act 2024.Amendment 17 in the New Act updates section 48 of the Principal Act. These amendments will facilitate (so the draft explanatory memorandum on the Bill prior to adoption says) indicates, the introduction of essential Charity Accounting and Reporting Regulations.
Section 48(3)(a) (reproduced below) concerns the preparation of income and expenditure accounts by charities and is updated to provide for an increase in the income or expenditure threshold from €100,000 to €250,000.
The provisions in S48(6)(c) reproduced below, update the conditions under which a charity is exempt from the requirement to prepare an annual statement of accounts. Section 48 as amended is reproduced immediately below:
S48(1) Subject to subsection (3), the charity trustees of a charitable organisation that is not a company shall, in respect of each financial year, prepare a statement of accounts (in this section referred to as the “annual statement of accounts”) in such form and containing information relating to such matters as may be prescribed by regulations made by the Minister.Amendment 18 in the New Act updates section 50 of the Principal Act and it is reproduced below (changes in light blue).
S50(1) The accounts of a charitable organisation in respect of a financial year (in this subsection referred to as the “relevant financial year”) shall be audited not later than 9 months after the end of the relevant financial year by a qualified person if the gross income or total expenditure of the charitable organisation in:Amendment 19 of the New Act amends section 52 of the Principal Act. The amendment amongst other things provides that the term ‘annual return’ will be used to describe the information required to be submitted to the Authority under section 52 of the Principal Act, rather than the term ‘annual report’. Additionally section 52(4)(a) is substantially amended (not reproduced here) and section 52(5) is deleted.
Amendment 20 of the New Act relates to amendments to section 53 of the Principal Act.
Section 53(1) of the Principal Act is amended to read:
S53(1) The Authority may, by direction in writing, require a charitable organisation or a charity trustee of a charitable organisation to provide the Authority with such information as it may reasonably require to enable it to perform its functions, within the period and in the manner specified in the direction.
Section 53(2) of the Principal Act is deleted.
Section 53(3) of the Principal Act is amended to read:
S53(3) The Authority may request the Minister for Education or the Minister for Further and Higher Education, Research, Innovation and Science, as appropriate, to provide it with such information, relating to a charitable organisation that is an education body, as the Authority may reasonably require to enable it to perform its functions.
The following sections are inserted.
S53(4) If a charitable organisation that is a body corporate fails to comply with a direction under subsection (1) it shall be guilty of an offence.
S53(5) If a charity trustee of a charitable organisation fails to comply with a direction under subsection (1) he or she shall be guilty of an offence.
S53(6) If, in relation to a charitable organisation, there is a failure to comply with a direction under subsection (1) each of the charity trustees of the charitable organisation shall be guilty of an offence.
Amendment 21 in the New Act amends S54(1) and (2) of the Principal Act so that they read as follows:
S54(1) Subject to any enactment or rule of law prohibiting the disclosure of information, the Authority shall make available, on the internet or in such other manner as it considers appropriate, all annual returns and documents attached thereto that remain in its keeping in accordance with section 52(6).
S54(2) This section does not apply to: (a) a private charitable trust, or (b) an education body that is referred to in any of paragraphs (a) to (e) of the definition of education body.
Amendment 22 in the New Act introduces four new sections into section 54 of the Principal Act, being sections 54A, 54B, 54C and 54D respectively. These important new sections are reproduced immediately below:
Charity trustees (S54A)
S54A(1) Subject to subsection (2), a charitable organisation shall have at least 3 charity trustees who are natural persons and a majority of those trustees shall:Principal duties of charity trustee (S54B)
S54B(1) Without prejudice to the duties of trustees generally and to the requirements of this Act, the duties of a charity trustee of a charitable organisation shall include the following:
S54B(2) Where a charitable organisation is on notice that a charity trustee of the charitable organisation has committed a breach of his or her duty under subsection (1), the charitable organisation shall endeavour to remedy the consequences of that breach as soon as practicable after becoming aware of the breach.
S54B(3) A breach of duty by a charitable trustee under subsection (1) shall not of itself affect:
S54B(4) In so far as a duty of a charity trustee specified in subsection (1) corresponds to an equitable principle or common law duty of a trustee, regard shall be had to the equitable principle or common law duty in interpreting that duty and in the application of subsection (1).
S54B(5) Where the Authority is of the opinion that there has been a contravention of subsection (1) or (2), the Authority may make an application to the High Court citing paragraph (b) or (e) of section 74(1).
Guidelines and codes of conduct (S54C)
S54C(1) The Authority may issue, and from time to time revise, guidelines or codes of conduct for the purpose of the performance of its functions under this Act.
S54C(2) Guidelines or codes of conduct under subsection (1) may relate to: (a) the duties of charity trustees, (b) minimum standards for the administration and management of charitable organisations, (c) procedural requirements in relation to the occurrence of a significant event (see definition below), (d) the content of the constitution of a charitable organisation, or (e) an agreement or appointment (within the meaning of Part 6A).
S54C(3) A charitable organisation and the charity trustees of a charitable organisation shall have regard to any guidelines or codes of conduct under subsection (1).
S54C(4) The Authority shall publish any guidelines or codes of conduct in such manner and form as the Authority considers appropriate.
S54C (5) In this section, ‘significant event’, in relation to a charitable organisation, means:
Register of members (S54D)
S54D(1) A charitable organisation shall keep a record of the members of the charitable organisation (in this section referred to as a ‘register of members’).
S54D(2) A register of members shall include the following information:
S54D(3) Information in relation to a person who has ceased to be a member shall be removed from the register of members one year after that person ceases to be a member.
S54D(4) This section does not apply to an education body.
Amendment 23 in the New Act provides for amendments to section 55 (Persons disqualified for being trustees of a charitable organisation) of the Principal Act. This includes updating certain eligibility criteria for a person to act as a charity trustee.
S55(1) Subject to subsection (3), a person shall cease to be qualified for, and shall cease to hold, the position of charity trustee of a charitable organisation if that person:
S55(1A) A person who has ceased to hold the position of charity trustee of a charitable organisation by virtue of subsection (1) (other than for the reason in paragraph (g) of that subsection) shall, as soon as practicable, notify the Authority in writing of that fact.
S55(2) A person who, by virtue of subsection (1), is not qualified, or has ceased, to be a charity trustee of a charitable organisation may, on notice to the Authority, apply to the High Court for an order that he or she may hold the position of charity trustee of a particular charitable organisation or of a charitable organisation of a particular class, and the High Court may, upon such an application, make such an order if it considers that it would be in the public interest and in the best interests of the charitable organisation concerned or charitable organisations of the class concerned for it to make such an order.
S55(3) Where the High Court makes an order under subsection (2) in relation to a person, that person may, by virtue of that order, hold the position of charity trustee of: (a) the charitable organisation to which the order relates, or (b) a charitable organisation of the class to which the order relates, but if, after the making of the order, any of the events referred to in subsection (1) (other than paragraph (a)) occurs, the order shall cease to have effect and the provisions of that subsection shall apply.
S55(4) The Authority shall establish and maintain a register of all persons who have ceased to hold the position of charity trustee of a charitable organisation by virtue of subsection (1).
S55(5) The Authority shall, from time to time, review each entry in the register established under this section and, if it becomes aware that any particular in that register is incorrect or has ceased to be correct, it shall make such alterations to that register as it considers necessary.
S55(6) The register established and maintained under this section shall be made available for inspection by members of the public at all reasonable times at the principal office of the Authority.
Amendment 24 amends Section 59(3)(d) of the Principal Act, by substituting the term ‘annual report’ with ‘annual return’ to align the terminology with the amendments made to sections 52 and 54 of the Principal Act.
Amendment 25 in the New Act establishes that under section 64 of the Principal Act, an inspector appointed under this section shall be furnished with a warrant of appointment, which can be produced for inspection. New subsection 64(3) sets out that the Authority shall notify the Minister for Education or the Minister for Further and Higher Education, Research, Innovation and Science, as appropriate, where the Authority appoints an inspector to investigate the affairs of a charitable organisation that is an education body.
Amendment 26 inserts a new section 66A to the Principal Act. This new section grants a statutory power to the Authority to direct that any concerns identified in a report under section 66 be addressed in a specified manner, or by way of a specified plan drafted by the charitable organisation, or both.
S66A(1) Where, on receipt of a final report under section 66(1), the Authority is of the opinion that it is appropriate to give a direction to the charitable organisation in relation to its affairs, the Authority shall by notice in writing inform the charitable organisation of:Amendment 27 Insertion of new sections 68A and 68B into section 68
Appointment of authorised officer (S68A)
S68A(1) The Authority may appoint a person (in this Act referred to as an ‘authorised officer’) or more than one such person for such period and subject to such terms as the Authority may determine.
S68A(2) The Authority may, where appropriate having regard to its functions under this Act, request an authorised officer to carry out an examination of the compliance by a charitable organisation with a provision of this Act.
S68A(3) The Authority may revoke the appointment of an authorised officer appointed under subsection (1) whether or not the appointment was for a fixed period.
S68A(4) An appointment under subsection (1) ceases:
(a) if it is revoked under subsection (3), (b) if it is for a fixed period, on the expiry of that period, or (c) if the person appointed is a member of staff of the Authority, on the person ceasing to be such a member.
S68A(5) An authorised officer appointed under subsection (1) shall be furnished with a warrant of his or her appointment and when exercising a power under this Act shall, if requested by any person affected thereby, produce the warrant, or a copy of it, to that person for inspection.
S68A(6) The Authority shall notify the Minister for Education or the Minister for Further and Higher Education, Research, Innovation and Science, as appropriate, where the Authority appoints an authorised officer to carry out an examination in respect of a charitable organisation that is an education body.
Powers of authorised officer (S68B)
S68B(1) An authorised officer shall have all the powers of an inspector under section 65 in carrying out an examination under section 68A, subject to the following modifications: (a) a reference to an investigator in section 65 shall be construed as a reference to an authorised officer, (b) a reference to an investigation in section 65 shall be construed as a reference to an examination under section 68A, and (c) any other necessary modifications.
S68B(2) Following the carrying out of the examination under section 68A, an authorised officer shall make a report in writing to the Authority setting out the findings of his or her examination. (3) An authorised officer shall be independent in the performance of his or her functions.
Amendment 28 of the New Act extends the powers under section 69 of the Principal Act, regarding the entry and searching of premises under warrant, to include an authorised officer. It also provides that the offence provision under this section is extended to include any person who obstructs, interferes or impedes an authorised officer in the course of exercising a power conferred by a warrant.
It also extends the timeframe under section 69(2), for the retention of any books or documents obtained in accordance with a warrant, from 3 months to a period of up to 2 years.
Section 29 clarifies that section 72(1) of the Principal Act will apply to both inspectors and authorised officers appointed by the Authority.
Section 30 amends section 73 of the Principal Act, which relates to intermediate sanctions. The amendment expands the range of circumstances in which the Authority can impose intermediate sanctions and provides for intermediate sanctions to apply to contraventions under sections 39, 40, 88D, a direction under section 51(2), 53(1) or 66A(3) or an approved plan under section 66A(6) of the Principal Act respectively.
New subsection 73(2A) provides that the Authority shall, as soon as practicable after service of a notice under subsection (2), notify the Minister for Education or the Minister for Further and Higher Education, Research, Innovation and Science, as appropriate, where the proposal concerns a charitable organisation that is an education body
Amendment 31 of the New Act amends section 74 of the Principal Act, which provides that the Authority can apply to the High Court to make an order to protect a charitable organisation. The amendment includes a new ground on which the Authority may apply to the High Court where there is no effective management or oversight of the activities of the charitable organisation by the charity trustees. This amendment, section 74(4) (g), does not apply to an education body. Changes not reproduced here.
Amendment 34 (Insertion of new Part 6A in the Principal Act) introduces a new Part 6A, concerning remuneration to or on behalf of, a ‘relevant person’. It consists of five new sections 88A, 88B, 88C, 88D and 88E.
New Section 88B details the specific instances where a charitable organisation may provide remuneration to, or on behalf of, a relevant person. New Section 88C provides that a charity may enter into agreements and make appointments subject to the prior approval of the Authority. New text set out below in blue.
Section 88A. In this Part:S88C(12) Subsections (5), (6) and (10) do not apply to an education body or a public body.
Section 89 of the Principal Act is repealed.
Amendment 36 in the New Act
New section 90A applies an equivalent level of indemnity, as provided under the Education Act 1998, to charitable organisations that are education bodies under paragraphs (b) and (c) of that definition.
S90A(1) No person to whom this section applies, acting in good faith, shall be personally liable in any civil proceedings in respect of anything done by that person in pursuance of this Act or any regulations made under it.
S90A(2) This section applies to a member of a board (referred to in section 14(7) or 37(4) of the Act of 1998) who is a charity trustee of a charitable organisation that is an education body, referred to in paragraph (b) or (c) of the definition of education body.
Amendment 37 in the New Act repeals section 99 of the Principal Act.
Amendment 39 in the New Act contains four amendments to the Charities Act 1961 (Act). Subsection 29(4) of the Act is repealed. Section 34(2) of the Act is updated to allow for the sale of charity land for less than market value to a charity that has the same charitable purpose. Sections 53 and 54 of the Act are repealed.
© Copyright Paul Foley Law June 2024:
Copyright (c) Paul Foley Law 2024: all rights reserved. See also the Notice at the end of this article for the purposes of Directive EU 2019/790 (on Copyright and Related Rights), Article 4 (Exception or limitation for text and data mining).
About Paul Foley Law
Paul Foley Law provides and has provided for many years applicants for investment services authorisation under MiFID II with regulatory law advice and drafting including with specific policies required for the purposes of an authorisation application.
Paul Foley Law also advises authorised MiFID II investment firms on compliance and reporting requirements with/under MiFID II, CA 2014, IFD and IFR, the EU Market Abuse Laws, the EU AI Act, GDPR and all other laws and regulations applying to investment firms.
For legal advice and drafting, contact: paul@paulfoleylaw.ie
Directive (EU) 2014/65 (MiFID II) (Articles 9, 16, 23 and 24 thereof), Commission Delegated Regulation (EU) 2017/565 and Commission Delegated Directive (EU) No 2017/593 together with certain EBA and joint ESMA and EBA guidelines, form the foundation for the MiFID II internal governance requirements.
However, the recently in force Directive (EU) 2019/2034 (IFD) and Regulation (EU) 2019/2033 (IFR) regime, which the EBA argue is consistent with MiFID II, established a dedicated prudential framework for investment firms. The EBA stated that the CRR/CRDIV regime, did not effectively capture the actual risks faced by the majority of EU investment firms. Hence the need for this new regime.
The IFD contains provisions on governance and remuneration set out at Arts 25 to 34 of the IFD. These Arts do not apply to small and non-interconnected firms (Art 25(1), IFD).
Investment firms must have robust governance arrangements, including all of the following:
When establishing these arrangements, the criteria set out in Art 28 to Art 33 of the IFD (not reproduced here) must be taken into account (Art 26(2)).
The arrangements in Art 26(1) must be appropriate and proportionate to the nature, scale and complexity of the risks inherent in the business model and the activities of the investment firm (Art 26(3)). Par 20 of the EBA Governance Guidelines (pages 17 to 19) further specifies how to take into account criteria for the application of the proportionality principle.
In addition, Art 9(1) of MiFID II specifies that investment firms and their management bodies must comply with Art 88 (Governance arrangements) and Art 91 (Management Body) of CRDIV.
In November 2021, the EBA published guidelines on internal governance, under Art 26(4) of the IFD (EBA: final report on guidelines on internal governance under Directive (EU)2019/2034 (EBA/GL/2021/14)) which guidelines, provide guidance on the governance arrangements referred to in Art 26(1) (EBA Governance Guidelines).
In accordance with the IFD, the EBA Governance Guidelines apply to all investment firms that do not qualify as small and non-interconnected investment firms (class 3 firms) as referred to under Art 12(1) of the IFR.
The EBA Governance Guidelines specify in more detail the requirements under the IFD.
The business lines, as part of the first line of defence, take risks and are directly and permanently responsible for their operational management.
The independent risk management function, where established, and the compliance function form the second line of defence.
A member of the management body may be responsible for the risk management function provided that the member does not have other mandates that would compromise the member’s internal control activities and the independence of the risk management function.
The internal audit function, where established as an independent third line of defence, conducts risk-based and general audits and reviews the internal governance arrangements, processes and mechanisms to ascertain that they are sound and effective, implemented and consistently applied.
Investment firms that do not establish an independent audit function must establish other appropriate audit policies and procedures. In any case, the ultimate responsibility for audits remains with the management body (see below).
While the business needs to manage its risks, the EBA Governance Guidelines stress the responsibilities of the second line of defence (the independent risk management and compliance function) and also the third line of defence (the internal audit function).
The EBA Governance Guidelines specify that the terms ‘management body in its management function’ and ‘management body in its supervisory function’ should be understood as applying to the bodies or members of the management body responsible for that function in accordance with national law.
The EBA Governance Guidelines state that the management body should identify one of its members in line with the requirements under Article 46(4) of Directive (EU) 2015/849 (AMLD IV) to be responsible for the implementation of the laws, regulations and administrative provisions necessary to comply with AMLD IV.
Under the updated joint EBA and ESMA guidelines on suitability of the management function (ESMA35-36-2319 EBA/GL/2021/06), investment firms that do not meet all of the conditions for qualifying as small and non-interconnected investment firms under Art 12(1) of the IFR and that are neither significant nor listed should, as a general principle, have at least one independent member on the management body in its supervisory function. However, competent authorities may not require any independent directors under specific conditions foreseen in the guidelines.
The EBA Governance Guidelines provide that investment firms should establish a permanent and effective compliance function to manage compliance risk, and should appoint a person to be responsible for this function across the entire investment firm (the compliance officer).
The compliance function, policies and procedures should also be compliant with Art 22 of Commission Delegated Regulation (EU) 2017/565 and with also the ESMA guidelines on certain aspects of the MiFID II compliance function.
The EBA Governance Guidelines specify that where it is not proportionate to appoint a person who is dedicated only to the role of head of the risk management function (RMF), taking into account the principle of proportionality, this function can be combined with the head of the compliance function or can be performed by another senior person, provided there is no conflict of interest between the tasks performed. In any case, this person should have sufficient authority, stature and independence (e.g. head of legal).
The compliance function and, where established, the risk management function intervene as necessary to ensure the modification of internal control and risk management systems within the first line of defence. The ESMA Guidelines On certain aspects of the MiFID II compliance function requirements provide detail and guidance on the outsourcing of the compliance function (at page 21).
Member States must ensure that investment firms which do not meet the criteria set out in Art 32(4)(a) of the IFD, establish a risk committee composed of members of the management body who do not perform any executive function in the investment firm concerned (Art 28(4) IFD).
Member States must ensure that investment firms which do not meet the criteria set out in Art 32(4)(a) of the IFD, establish a remuneration committee. That remuneration committee must be gender balanced and must exercise competent and independent judgment on remuneration policies and practices and the incentives created for managing risk, capital and liquidity. The remuneration committee may be established at group level (Art 33(1) IFD).
With regard to the remuneration committee, please also refer to the EBA Guidelines on sound remuneration practices under Directive (EU) 2019/2034 (EBA/GL/2021/13 of 22 November 2021).
Investment firms that are legal persons managed by a single natural person should have alternative arrangements in place which ensure the sound and prudent management of such investment firms and the adequate consideration of internal governance arrangements (par 21 of the EBA Governance Guidelines on page 19).
Where investment firms are legal persons managed by a single natural person in accordance with their constitutive rules and national laws, the references in these guidelines to a management body should be construed as applying to the single person that is responsible for implementing alternative arrangements to ensure the sound and prudent management of such an investment firm and the adequate consideration of internal governance arrangements (par 31 of the EBA Governance Guidelines on pages 21 & 22).
Copyright Notice: No text or data mining, or Web scraping
Our website: www.paulfoleylaw.ie