The appropriate course
10 The liquidator of an insolvent former trustee can exercise the statutory authority of a liquidator to realise the assets of a trust in the exercise of a lien or charge that secured the trustee's right of indemnity. However, in such instances, a court order is required: Jones (Liquidator) v Matrix Partners Pty Ltd, in the matter of Killarnee Civil & Concrete Contractors Pty Ltd (in liq) [2018] FCAFC 40; (2018) 260 FCR 310 at [44] (Allsop CJ, Farrell J agreeing at [196]). Once the sale has been effected, the proceeds may be appropriated by way of exoneration as part of the conduct of the administration and must be paid in accordance with the priority under s 556 of the Corporations Act: Carter Holt Harvey Woodproducts Australia Pty Ltd v The Commonwealth [2019] HCA 20 at [55]-[58] (Kiefel CJ, Keane and Edelman JJ), [95]-[97] (Bell, Gageler and Nettle JJ), [171] (Gordon J).
11 In this case, Gembrook's right to exoneration from the assets of the Trust substantially exceeds the amount of those assets. There are no general creditors, only trust creditors. As recently noted by Moshinsky J in Cremin, in the matter of Brimson Pty Ltd (in liq) [2019] FCA 1023 at [51], in such a situation 'the proceeds from the exercise of the right of exoneration are to be distributed to the trust creditors in accordance with the order of priority prescribed by the Corporations Act'.
12 Therefore, if Mr Carrello had followed the course of seeking to be appointed as a receiver of the trust assets for the purpose of their realisation in order for the proceeds to be applied to satisfy the right of exoneration, there would be no need for the orders that are sought as to the remuneration of Mr Carrello in acting as liquidator of Gembrook as trustee. Further, Mr Carrello would be entitled to remuneration for his work as liquidator in doing so: Re Suco Gold Pty Ltd (in liq) (1983) 33 SASR 99 at 110 (King CJ).
13 However, even though Mr Carrello did not seek an order that he be appointed as receiver, once he was appointed as liquidator of Gembrook there was no prospect of any distribution of property to beneficiaries of the Trust. The trust assets were burdened with a lien or charge to the extent of the substantial right of exoneration of Gembrook. The creditors could claim the benefit of that right. Gembrook as trustee could then realise the assets for the benefit of creditors or allow a receiver to do so. There was no means by which Gembrook as trustee could oppose the realisation of the assets for the benefit of the creditors of Gembrook.
14 In submissions in support of the application, reliance was placed upon decisions in which the view was expressed that the Court could make orders for the payment of the expenses and remuneration of a liquidator of an insolvent corporate trustee: see, for example: Re Mamounia Pty Ltd (in liq) [2017] VSC 230; and In the matter of Independent Contractor Services (Aust) Pty Ltd (No 2) (in liq) [2016] NSWSC 106 and In the matter of AAA Financial Intelligence Ltd (in liq) [2014] NSWSC 1004. However, those decisions were made before the recent clarification of the law in this area, particularly the decisions in Matrix Partners and Carter Holt Harvey Woodproducts.
15 Further, the course of the decisions concerning the circumstances in which it may be appropriate for a liquidator to be remunerated for actions taken in the administration of a trust of which the company under administration is trustee were traced with some care by Robson J in Re Mamounia at [111]-[159]. They begin with the reasons of Dixon J in Re Universal Distributing Co Ltd (in liq) [1933] HCA 2; (1933) 48 CLR 171. The reasoning in that decision was to the effect that the liquidator could deduct from a fund created from assets realised by the liquidator that were the subject of a debenture, the expenses reasonably incurred in the care, preservation and realisation of the property. This is a right that arises where the assets are realised for the benefit of the party to be burdened with paying the costs. That is not the position of the beneficiaries where assets of an insolvent trust fund are realised for the benefit of creditors of the trustee.
16 Then there is the decision in Octavo Investments Pty Ltd v Knight [1979] HCA 61; (1979) 144 CLR 360 where the High Court recognised that the right of indemnity held by a trustee over the assets of the trust meant that in the event of the trustee's insolvency, the creditors of a business conducted by the trustee as part of the affairs of the trust may resort to the assets of the trust to the extent of the indemnity. However, the issue that then arises concerns how that right may be exercised.
17 Robson J then referred to the following summary by Brereton J in AAA Financial Intelligence at [13]-[14] of the principles to be applied where a liquidator of an insolvent trustee sought to claim remuneration in respect of the administration of the trust (dealing with a case where the company in administration was both a trustee holding trust property and had activities in its own interests):
[T]he applicable principles may be stated as follows:
(1) Where the company is trustee of a trading trust and has no other activities, the liquidators are entitled to be paid their costs and expenses, whether for administering the trust assets or for 'general liquidation work', out of the trust assets.
(2) Where the company does not act solely as trustee, costs and expenses referable to work done in relation to trust assets which may nonetheless be considered as having been done for the purpose of winding up the company ought ordinarily be borne primarily by the (non-trust) property of the company, to the extent that the assets permit.
(3) At least where the non-trust assets do not permit that course, and perhaps even when they do, a liquidator is entitled to be indemnified out of trust assets for his costs and expenses, but only to the extent that they are referable to administering the trust assets. This is pursuant to the court's equitable jurisdiction to allow a trustee remuneration costs and expenses out of trust assets, which extends to a person such as a liquidator who is, for practical purposes, controlling a trustee.
(4) In principle, where the liquidator does work which would entitle him both to remuneration as liquidator by the company, and recovery from the trust assets, there are two funds liable and there should be contribution between them. However, where there are no assets of the company available, it is unnecessary to consider the question of contribution. If a liquidator has done work which is attributable equally to the winding up of the company and the administration of trust assets, and there are no assets of the company at all to meet his expenses in doing so, the expenses are payable solely from the trust assets.
(5) Where the liquidator is administering, through the company of which he/she is liquidator, more than one trust, the liquidator is not entitled to charge the beneficiaries of one trust with the costs and expenses incurred in relation to the other, although where allocation is not possible a pari passu allocation may be permitted.
In this case, the company did not act solely as a trustee. Prima facie, costs and expenses of the winding up should be borne by its non-trust assets. However, it appears that it has none (although this remains to be proven). Subject to that, the liquidators are entitled to their reasonable and proper costs and expenses from the trust assets, but only in respect of such work as is referable to administration of the trust assets. That result accords with the direction and advice the liquidators seek.
(citations omitted)
18 Significantly, Robson J concluded his analysis by recognising that a question remains as to whether a liquidator may, as a right, exercise powers as to trust assets of a kind that the courts have recognised on applications for directions or whether the power to access the trust assets must be sought from the Court: at [159]. The answer to that question has now been provided by the decisions in Matrix Partners and Carter Holt Harvey Woodproducts. Save perhaps for resort to cash funds held by the trustee that can be used for the exoneration of creditors, it is necessary to apply to court and the appropriate course is to seek the appointment of a receiver. The right of indemnity does not confer a self-help right on the part of an insolvent trustee to sell trust assets so that the proceeds can be applied to pay creditors.
19 Further, and importantly, the right of the liquidator to resort to trust assets on the basis of an entitlement to remuneration for acting as trustee has been limited by the authorities to undertaking work referable to 'the administration of trust assets'. It may be questioned as to whether the sale of assets for the purposes of exercising the trustee's right of indemnity upon insolvency of the trustee is part of the administration of trust assets. Therefore, it may also be questioned as to how remuneration for action taken on that basis might be determined by reference to principles and statutory provisions concerned with trustees performing their responsibility to undertake the due administration of a trust in the interests of the beneficiaries.
20 In my view, the appropriate course in a case like the present is to consider whether to make orders in the exercise of the power conferred by the Corporations Act to make such orders as the Court thinks fit in relation to the external administration of an insolvent company (see below). Those orders might now approve the actions of Mr Carrello on the basis that the steps that were taken reflected rights that existed at the time that the assets of the Trust were realised, there being no suggestion that Gembrook acted improperly in a manner that might compromise those rights. Mr Carrello has an obligation to disclose all matters that might bear upon the Court making the orders sought and I deal with the application on that basis. The reasonable costs incurred by Mr Carrello in realising the assets have been for the benefit of creditors and for that reason may be approved on the basis that they were properly costs of the liquidation. Approaching the matter on that basis, as I do, it is not necessary to consider whether Gembrook may be remunerated as trustee for actions that were taken solely in its own interest to realise the assets of the trust so it might be exonerated to the extent possible (and, if so, what might be the appropriate basis upon which to assess that remuneration). Rather, the work undertaken by Mr Carrello in realising the assets of the trust can be viewed as being, in effect, costs of the external administration to be assessed on a similar basis.
21 I am fortified in taking this approach by recent decisions by judges of this court to the effect that the appropriate course for a liquidator to take when seeking to sell assets of a trust in the exercise of the trustee's right to indemnity is for the liquidator to apply to be appointed as a receiver to realise the assets of a trust in the exercise of a lien or charge securing a trustee's right of indemnity: Matrix Partners at [44] (Allsop CJ, Farrell J agreeing); Amirbeaggi, in the matter of Simpkiss Pty Ltd (in liq) [2018] FCA 2121 (Markovic J); Taylor (Liquidator) v CJ & KL Bond Super Pty Ltd (Trustee), in the matter of CJ & KL Bond Pty Ltd (in liq) [2018] FCA 1430 (White J); Cremin, in the matter of Brimson Pty Ltd (in liq) (Moshinsky J); and Deputy Commissioner of Taxation, in the matter of The Mai Family Pty Ltd (in liq) v The Mai Family Pty Ltd (in liq) [2019] FCA 865 (Besanko J).
22 If such a course is followed then, on the application for appointment as a receiver, the Court can scrutinise whether there are indeed interests of the beneficiaries of the trust that might need to be provided for, such as in cases where the power to resort to trust assets for exoneration of creditors has been compromised by the actions of the trustee or where the trust includes the benefit of rights (such as causes of action) that might be exercised by a trustee in the interests of the beneficiaries (but not by a receiver acting in the interests of realising assets pursuant to the trustee's right of indemnity) that need to be provided for in the making of such orders. Otherwise, such matters are left until after the event when the Court is asked to scrutinise whether particular actions were undertaken in the due administration of the trust in order to approve remuneration of the liquidator and the manner of distribution of proceeds recovered by the sale of trust assets.