Overview of Project Trusts
What is a Project Trust?
A Project Trust is a trust over particular money that relates to a Project Trust Contract. A trust is a legal arrangement in which a person (beneficiary) gives money or assets to another person (trustee) to hold for the benefit of the beneficiaries to that trust. [Examples]
The money or assets held in trust can only be used or dealt with by the trustee and only in accordance with the terms of a trust agreement/deed or some other agreement between the beneficiary and the trustee. With Project Trusts and Retention Trusts under BIF2, that means only in accordance with BIF2.
A Project Trust is a trust over the following amounts primarily for the benefit of subcontractor beneficiaries:
- amounts paid by the principal to the head contractor for the Project Trust Contract;
- amounts paid by the head contractor to the subcontractors; and
- amounts deposited into the Project Trust Account as required under BIF2.
The head contractor is the trustee of the Project Trust and becomes the trustee when the Project Trust is established.
Who are the beneficiaries of a Project Trust?
The beneficiaries of a Project Trust are:
- the head contractor;
- all first-tier subcontractors that are contracted to the head contractor to carry out protected work provided the subcontract price is at least the minimum contract price; and
- all first-tier subcontractors that are contracted to the head contractor to supply related services provided the subcontract price is at least the minimum contract price.
A head contractor:
- becomes a beneficiary of the Project Trust when the trust is established; and
- ceases to be a beneficiary when the Project Trust is lawfully dissolved.
A subcontractor:
- becomes a beneficiary of the Project Trust when it enters into its subcontract; and
- ceases to be a beneficiary when it has been paid all that it is entitled to be paid under its subcontract.
Therefore, there may be a disagreement as to whether a particular subcontractor is a beneficiary of the Project Trust e.g. if the head contractor believes that the subcontractor has been paid all that it is entitled to be paid under its subcontract, but the subcontractor disagrees.
If a subcontractor has more than one subcontract with the head contractor for the same Project Trust Contract, the ‘contract price’ for the subcontract is taken to be the combined total of the subcontract price for all subcontracts for that subcontractor under Project Trust Contracts on the same or adjacent sites. This is not an issue at the moment as the BIF Regulation has not yet set a ‘minimum contract price’ so subcontracts of all values are captured if they meet the other requirements of BIF2.
What are the beneficial interests in a Project Trust?
Under a Project Trust:
- subcontractors have a beneficial interest equivalent to the amount they are each entitled to be paid under their subcontract; and
- the head contractor has a beneficial interest in what is left over i.e. the amount held in trust after deducting all amounts subcontractors are entitled to be paid in connection with their subcontracts.
In theory, a subcontractor can take legal action against the head contractor for a breach of trust if the head contractor uses trust money that it is not permitted to use, however, in practice, the subcontractor will need to first prove that it is entitled to be paid the amount under its subcontract before it will be able to successfully prove a breach of trust. It is important that subcontractors take action as quickly as possible if they believe that they are owed an amount under a subcontract related to a Project Trust. [Example]
When is a Project Trust required?
A Project Trust is required for a head contract if:
- the contract is eligible for a Project Trust; and
- the contract is not exempted; and
- the head contractor enters into a subcontract for all or part of the contracted work.
The requirement for a Project Trust starts when the above requirements are met and continues until the Project Trust is dissolved regardless of any of the following:
- a variation or other amendment to the Project Trust Contract;
- a change in the contract price;
- a change in the contracted work.
That means that once a contract is a Project Trust Contract, it is always a Project Trust Contract until the Project Trust can be lawfully dissolved. [Example]
Contracts that are eligible for a Project Trust
All head contracts that meet the following requirements are eligible for a Project Trust:
- contracting party is a principal of the type noted for the current phase of the Statutory Trust Framework rollout; and
- contract price is an amount that falls within the current phase of the Statutory Trust Framework rollout; and
- more than 50% of the work to be carried out under the contract is Project Trust Work.
All first-tier subcontracts under a Project Trust Contract are also eligible contracts if the subcontractor is a related entity of the head contractor and a Project Trust is established for that head contract. The head contractor is required to notify the Queensland Building and Construction Commissioner within 5 business days after entering into that subcontract (max penalty: 200 PU ($28,750)). The notice must be given using the approved form or the myQBCC Portal.
If a first-tier subcontract is also a Project Trust Contract, two Project Trusts are created – one for the head contract and one for that particular subcontract.
A regulation may also prescribe that a particular head contract is an eligible contract or that a particular subcontract is an eligible contract. (No such projects have yet been prescribed by the BIF Regulation.)
Contracts that are exempt from a Project Trust
A Project Trust is not required for the following contracts:
(a) a subcontract unless it is:
- prescribed by regulation to be a Project Trust Contract (there is nothing in the BIF Regulation at this time); or
- the subcontractor is a first-tier subcontractor AND is a related entity of the head contractor AND the head contract is a Project Trust Contract;
(b) a head contract if:
- the contracting party or the contracted party is an entity prescribed by regulation (there is nothing in the BIF Regulation at this time); or
- the only parties to the contract are the State and a State Authority;
(c) a contract if the only Project Trust Work is residential construction work for less than three living units (single detached dwelling = 1 living unit; residential unit = 1 living unit; duplex = 2 living units);
(d) a contract for maintenance work only;
(e) a contract for advisory work or design work only, carried out, either directly or indirectly, by:
- an architect under the Architects Act 2002; or
- a registered professional engineer under the Professional Engineers Act 2002; or
- a building designer; or
- a person who carries on a business as a landscape architect;
(f) a contract for contract administration only, carried out, either directly or indirectly, by:
- an architect under the Architects Act 2002; or
- a registered professional engineer under the Professional Engineers Act 2002; or
- a building designer; or
- a person who carries on a business as a landscape architect;
for the construction of a building wholly or partly designed by that person;
(g) a contract with less than 90 days between the first day a Project Trust would be required and the day practical completion of the contracted work is expected to occur.
When is a Project Trust established?
If a Project Trust is required for a project, it is established on the first of the following that occurs after the Project Trust is required:
- payment of an amount from the principal to the head contractor under the Project Trust Contract;
- payment of an amount from the head contractor to a subcontractor beneficiary under a subcontract;
- a deposit into the Project Trust Account as required by BIF2.
This is a legal point in time that does not really affect the operation of the Project Trust Account for the head contractor or any subcontractors but is relevant to the question of when the trust obligations commence. However, care must be taken to understand that even though a contract may be eligible for a Project Trust, a Project Trust is not required until the first subcontract for Protected Work or Related Services is entered into which may be some weeks after the head contract is entered into.
Further, the Project Trust is not established until the first payment to the head contractor or a subcontractor beneficiary is made or a deposit is made into the Project Trust Account which, again, may be some days/weeks after the first subcontract is entered into.
While this may all be very confusing (and we agree!), it is important that head contractors (and principals and subcontractors) understand these dates and take the time to work through when BIF2 applies and the obligations contained within it so that representations are not made that money is trust money or that a trust exists unless the applicable trigger under BIF2 has occurred.
FAQs
Not necessarily. If the:
- same parties enter into
- two or more separate contracts for the carrying out of Project Trust Work at the
- same site or adjacent sites,
then the combined total of the contract price for all of those contracts is taken to be the Contract Price for the purposes of determining if a Project Trust is required for those contracts. However, this does not apply where it can be shown that the separate contracts were entered into as part of separate tender processes. [Example]
It also does not apply if one of the contracts does not include any Project Trust Work.
For the 1 March 2021 and 1 July 2021 phases, the relevant date is the date that the tender process for the head contract started. For the other phases, the relevant date is the date the Project Trust Contract is entered into.
Unfortunately, BIF2 is not entirely clear on this point. The legislation states that the 90 days is to be counted from the first day a Project Trust is required until the date that practical completion is expected to occur. So the first step is to carefully review the requirements set out above to determine the date that a Project Trust is required - this is unlikely to be the date the head contract was entered into and is most likely going to be the date the first subcontract for Protected Work was entered into.
However, if an amendment to the head contract extends this period to longer than 90 days, the legislation requires the head contractor to reconsider this provision to determine if this exemption still applies. The confusion comes from whether or not the 90 days is then calculated from the date of the amendment or still from the original date that a Project Trust would be required if it wasn't for this exemption.
Section 15F(1)(a) of the BIF Act includes a note that states that the 'trigger date' for this exemption is the date of the amendment but that note only seems to apply where the amendment means that the contract is now eligible for a Project Trust. The issue is that where the contract was always eligible for a Project Trust but was exempted because of a short duration, technically the 90 days must still be counted from the original date that a Project Trust was required (if it was not exempted under this provision), not the date of the amendment.
The QBCC's Trustee Guide for Project Trusts states that the 90 days is to be counted from the date of the amendment. However, that Guide is not a legal document i.e. it cannot change the position set out in the legislation. This may be one that we simply need to wait for government to clarify by amending the legislation. Until then, take care with projects that may or may not fall within this exemption.
Even though a head contract does not meet the requirements for a Project Trust on commencement of the contract, if an amendment to the contract is agreed that results in the contract now being eligible for a Project Trust, the contract becomes eligible for a Project Trust from the day the amendment to the contract takes effect.
Amendments that could trigger eligibility for a Project Trust include:
- more than 50% of the contract price is for Project Trust Work through the addition of Project Trust Work to the scope of the contract;
- contract price is revised by variation so that the contract price now exceeds the minimum trigger for the current phase of the Statutory Trust Framework rollout.
However, if the amendment is only an increase in the contract price (which does not necessarily apply to variations to the contract that change the contract scope), a Project Trust is only required for the contract if the amendment, together with any earlier amendments of the contract, increases the original contract price by 30% or more.
No - if a Project Trust was not required under the former chapter 2 of the BIF Act, then it is not required even if there is an amendment to the contract.
Yes, it could. At present, a Project Trust is required if the contract meets the requirements set out above for triggering a Project Trust. That typically applies to contracts entered into on or after the commencement date for each phase of the Statutory Trust Framework rollout.
However, chapter 2 of the BIFA also provides that a Project Trust is required for a contract entered into on or after 1 March 2021 (regardless of the phase of the rollout) if there is an amendment to the contract and, after the amendment, a Project Trust is required. An amendment is defined as including a variation of the contract or change in the contract price. A variation is defined as an addition to, or an omission from, the contracted work.
This means that there is an argument that any amendment to a contract entered into on or after 1 March 2021 may trigger a Project Trust (assuming the other requirements are met). We understand that that was not the intention of government and there are some discussions currently taking place to amend the BIFA to ensure that it is only if the amendment makes the contract eligible for a Project Trust that it will be required, and not just any amendment. It also appears that government did not intend for a Project Trust to be required unless the contract price increased by 30% or more after the commencement of the relevant phase regardless of the reason for the price increase.
We will update our resource library if/when the BIFA is amended. In the interim, we recommend that any known changes to the contract are processed prior to commencement of the relevant phase of the rollout to minimise the risk of requiring a Project Trust part way through the project.
In any event, if a contract meets the requirement for a Project Trust after the commencement of a particular phase of the Statutory Trust Rollout (regardless of the reason for the amendment i.e. it has a principal is a type that is captured by the current phase, revised contract price exceeds the threshold for the phase, and a subcontract is entered into), then a Project Trust is required at that time. [Examples]
for principals
for subcontractors
Principals also have obligations that they must comply with in relation to Project Trusts. Penalties apply if the principal does not comply with those requirements.
Click here to understand how Project Trusts affect principals.
Some subcontractors are beneficiaries of the Project Trust whilst some are not. It depends on what type of work the subcontractor is to carry out and what the subcontract price is for that work.
Click here to understand how Project Trusts affect subcontractors.
This page considers the situation where Project Trusts apply to head contracts. Unless noted otherwise, all references to a ‘subcontractor’ in relation to a head contract Project Trust refers to a subcontractor that is a beneficiary of the Project Trust.
If a subcontract also requires a Project Trust, the rules set out on this page are the same but the subcontractor is the ‘trustee’ and its subcontractors are ‘subcontractor beneficiaries’.
Last updated: 5 January 2023