Law relevant to extension claim
23In BP Australian Pty Ltd v Brown ( 2003) NSWCA 216, the Court of Appeal upheld the decision of Austin J in Brown v DML Resources (2001) 52 NSWLR 685 that a general order for extension of time could be made under Section 588FF (3) (b) of the Act, it being necessary that proper reasons for extension be shown. Austin J suggested that lack of funds, size and complexity of winding up, and volume of work required could be relevant matters. The relevant paragraphs of the Court of Appeal decision appear in the judgment of the Spigelman CJ, quoting several paragraphs from the judgment of Austin J:
[154] His Honour held (at 8-9), after referring to the Harmer Report:
"[31] The underlying idea is that it is desirable, in the interests of commercial certainty, for creditors to know where they stand within a reasonable period after the commencement of the liquidation. The outcome that would be produced by the plaintiffs' construction of r 11(3) would enable the liquidator to leave creditors in an uncertain state well beyond three years, because it would allow the liquidator to file a 'shelf ' application within the three-year period and then breathe life into it by adding the targeted creditor as a defendant at any later stage, unless the proceedings were dismissed.
[32] The true position seems to me to be more sensible. The Corporations Act sets the three-year time limit and provides for an application to be made within three years for extension of time ... The common law requires that if a particular creditor is targeted as a likely defendant in voidable preference proceedings, that creditor must be given notice of the application for extension of time, and may need to be joined as a party to the application for extension of time, especially if it responds to a notice by objecting to the proposed order on substantive grounds. In the interests of commercial certainty, the targeted creditor must become a defendant to the application for extension of time within the three-year time limit for making that application. If there is no targeted creditor and the application for extension is made in order to permit the liquidator to conduct investigations necessary to identify and explore potentially preferential transactions generally, the Court may grant the extension of time in general terms without specifying any particular transactions or defendants and in that event, it will not be necessary at any stage to join any particular creditor as the defendant to the application for extension."...
[168] In any event, I am of the view that Austin J was correct in the conclusion to which he came that an application under s 588FF(3)(b) seeking a general order for an extension of time to make an application under s 588FF(1) against any creditor, is a valid application and an order in those terms is a valid order. I agree with his Honour's analysis in the second judgment as follows:
"[33] In my opinion the applicants' submission places an unduly restrictive interpretation on s 588FF(3). The statutory language does not literally require the construction that they advance. It is true that subs (1) speaks of a particular application concerning a single transaction, and the opening words of subs (3) refer to the specific application identified by subs (1). But subs (3) refers to the application under subs (1) only in order to say that such an application must be made within the period of time that subs (3) sets. Subsection (3) does not say, as it might readily have said if the applicants' contention were correct, that the application under subs (1) may only be made within a longer period than three years if the Court allows that application to be brought later. Instead, it sets the time limit for making an application under subs (1) as three years after the relation-back day, or such longer period as the Court orders on an application under subsection (3) - that is a different application whose purpose is only to extend the time period. Consistently with the wording of subs (3), the application to extend the time limit can be an application to extend the time limit within which a particular subs (1) application can be made, or a broader application that applies to the particular subs (1) application under consideration and to other applications as well. I see no reason why the other applications cannot be described by category rather than in specific terms, provided that the description is clear.
[34] The construction for which the applicants contended would, in my opinion unnecessarily hamper the work of liquidators for no good reason. I accept the applicants' submission that a purpose of the statutory reform that produced s 588FF was to prevent liquidators from relegating the recovery of voidable preferences to the end of their work programs. The investigation of voidable transactions should generally be conducted concurrently with their other liquidation work. Nevertheless, there will be some cases where, notwithstanding the most diligent of efforts, the liquidator is so far short of completing his or her investigations towards the end of the time limit that it is impossible to identify particular transactions in respect of which orders for extension of time could be made."
...
[169] His Honour went on to refer to the circumstance in which there has been a long administration and a limited period was left for a liquidator to make the relevant application under s588FF (3) (b). For the reasons mentioned above, this part of the analysis may be open to question. Nevertheless, I agree with his Honour's conclusion.
[170] The power to extend the time limit for commencing proceedings is intended to provide for the circumstance in which a liquidator is not in a position to commence proceedings within three years of the relation-back day, for whatever reason, subject to the assessment of the court of all relevant circumstances, including the liquidator's conduct. It is not difficult to envisage a circumstance in which a liquidator is still ascertaining the identity of the recipients of benefits under possible voidable transactions and cannot give the court an indication of the creditors to be targeted. The power should be broad enough to allow, in those circumstances, for an order granting an extension of time in general terms.
[171] The requirement of commercial certainty on the part of those who have had past dealings with the corporation is to be balanced against the conflicting interest of the creditors of the company. The court, through the discretions it exercises under s 588FF(3) and s 588FF(1), is in a position to control unwarranted delay by liquidators. Subject to reasonable expedition on the part of a liquidator, and to adopt the reasoning of Doyle CJ in Pegulan Floor Coverings Pty Ltd v Carter (1997) 24 ACSR 651 at 659; 15 ACLC 1293 at 1300, the creditors are entitled to: "... the benefit of having the affairs of an insolvent company properly investigated and administered in an orderly fashion in terms of the provisions of the law".
24The Chief Justice went on to hold that in the exercise of the discretion, the question to be decided was what is "fair and just". In a case where a general order is sought, it is not possible to say that there is any disadvantage to any particular person in the making of the order. Of course if proceedings are subsequently brought, there could be such a disadvantage. It follows, that the liquidator seeking the extension must give a satisfactory explanation of the reasons for the delay.
25In Australian Securities and Investments Commission v Karl Suleman Enterprises Pty Ltd (In Liq) & Ors (2004) 52 ACSR 103 at [6] Barrett J referring to applications for extensions of time where no particular action is contemplated against any particular person said "An extension of time under Section 588FF (3)(b) in relation to cases of the latter kind it is possible and permissible must be regarded as exceptional. This is made clear in the decision of the Court of Appeal in BP Australia Ltd v Brown and that of the Queensland Court of Appeal in Greig v Stramit Corporation Pty Ltd [2004] 2 Qd R 17". Those cases do not appear to say that, although in the latter case, Williams JA considered that "as a general rule" there was no power to make blanket extension of time orders. In any event, I consider "exceptional" as used by Barrett J means "not usual" or "out of the ordinary" and was not intended to and cannot in some way confine the New South Wales Court of Appeal decision .
26These liquidations do not appear to me to be very complicated. They are not of the H.I.H type. Certainly there are a number of companies involved but there is no suggestion that proper accounts were not available. Arguments which rely on other work required to be performed in the liquidation need to be considered in the light of the appointed liquidators being members of a very large accounting firm with a large insolvency department presumably able to direct resources as required.
27After some consideration it seems to me that lack of funds is the only reason which could take these liquidations out of the ordinary. Against that however (at least in relation to AHA) it is clear that with or without funds, work was done on investigation of a debt owed to AHA by UFB Guam Hotel Corporation and on enquiries of the receivers to enable tax returns to be lodged. Presumably funds were not available but it was hoped that they would be. There is no evidence from Mr Cathro as to why priority was given to that work. In his administrator's report to the meeting of creditors he stated insolvent transactions questions required investigation but that did not suggest any particular transaction had been identified other than one later explained.
28Further to this, paragraph 83 of Mr Lombe's affidavit of 28 October 2011 states:
[83] I have received a number of volumes of material relating to the circumstances and events leading up to the appointment of the CBA Receivers. Although Deloitte and Sparke Helmore have reviewed those volumes for the purpose of the liquidation of the Companies (in particular, for the purpose of preparing reports to creditors), I have not yet undertaken a detailed consideration of those matters or sought legal advice in relation to them. Accordingly, I have not yet formed a view as to whether those events may give rise to a claim against any person or entity involved in those circumstances and events, whether the Companies have suffered loss or damage as a consequence, the further evidence required, the prospects of success and the like.
29This seems to be rather equivocal and it should be borne in mind that the originating process was filed on 26 August 2011. If the liquidator wished to strengthen his case he has had two months to consider the material to which he refers to in paragraph 83. At least so far as SPAC is concerned, funds became available on 2 August 2011 and funds became available in the HPIP and Ce'Nedra liquidations from April 2010. Any surplus funds from these latter two liquidations will flow up to HPIA.
30The question to ask is whether it is fair and just in all the circumstances to grant an extension of time. The applicant must establish that it is. Sufficient reason must be shown for failure to investigate up to the present time. There is no one to argue that it is not fair and just. The Court must decide this in the proper exercise of discretion. No separate arguments were directed to the position of the seven different companies or perhaps more accurately it was not suggested time be extended for one or more but not all the companies. There is no evidence to balance estimated cost of investigations against any possible gain. This is not an easy matter. I do not wish it to be thought that Mr Lombe as liquidator has not done necessary work in the winding up of the companies. But that is not the question to be decided. I have come to the conclusion the case for a general extension has not been made out and I should dismiss the extension proceedings.