The legal and jurisdictional requirements for applications to set aside bankruptcy notices in the Bankruptcy Act and Bankruptcy Rules upon the basis of an offsetting claim
12 The Bankruptcy Rules 2005 applied until 31 March 2016 and therefore applied to James' application made on 23 February 2016. On 1 April 2016, the Bankruptcy Rules 2016 commenced and therefore applied to Ljiljana's application made on 6 April 2016. In these reasons, a reference to the Bankruptcy Rules without a year is a reference to both the 2005 and the 2016 versions.
13 The Bankruptcy Rules 2005 and the Bankruptcy Rules 2016 in relation to an application to set aside a bankruptcy notice are substantially the same, but not identical. Rule 2.01(1) in each of the Bankruptcy Rules 2005 and the Bankruptcy Rules 2016 requires an application required or permitted by the Bankruptcy Act to be made to this Court by way of Form 2 and Form B2 respectively, except in circumstances that have no application to these matters. There was also a six-month period of grace in relation to changes in prescribed forms, allowing old forms to be used in applications governed by the new Bankruptcy Rules 2016 provided there was substantial compliance with the requirements of the new forms or only variations which were permissible in the circumstances of the case: Sch 3, item 1 of the Federal Court (Bankruptcy) Repeal Rules 2016 (Cth).
14 Rule 2.01(3) in each of the Bankruptcy Rules provides (with an immaterial difference in punctuation) that an application "must state":
(a) each section of the Bankruptcy Act, each regulation of the Bankruptcy Regulations or each section of the Cross-Border Insolvency Act under which the proceeding is brought; and
(b) the relief sought.
15 Rule 3.02 in each of the Bankruptcy Rules sets out the specific requirements for an application to set aside a bankruptcy notice. There are some differences in the language between the two, such that it is appropriate to set out separately relevant parts of the text of each as follows:
(1) rule 3.02(1) and (2) of the Bankruptcy Rules 2005 provided:
3.02 Setting aside bankruptcy notice
(1) An application to set aside a bankruptcy notice must be accompanied by:
(a) a copy of the bankruptcy notice; and
(b) an affidavit stating:
(i) the grounds in support of the application; and
(ii) the date when the bankruptcy notice was served on the applicant; and
(c) a copy of any application to set aside the judgment or order in relation to which the bankruptcy notice was issued and any material in support of that application.
(2) If the application is based on the ground that the debtor has a counter-claim, set-off or cross demand mentioned in paragraph 40(1)(g) of the Bankruptcy Act, the affidavit must also state:
(a) the full details of the counter-claim, set-off or cross demand; and
(b) the amount of the counter-claim, set-off or cross demand and the amount by which it exceeds the amount claimed in the bankruptcy notice; and
(c) why the counter-claim, set-off or cross demand was not raised in the proceeding that resulted in the judgment or order in relation to which the bankruptcy notice was issued.
(2) rule 3.02(1), (2) and (3) of the Bankruptcy Rules 2016 now provides:
3.02 Setting aside bankruptcy notice
(1) An application to set aside a bankruptcy notice under the Bankruptcy Act must be accompanied by an affidavit stating:
(a) the grounds in support of the application; and
(b) the date when the bankruptcy notice was served on the applicant.
(2) A copy of the bankruptcy notice must be attached to the affidavit.
(3) If the application is based on the ground that the debtor has a counter-claim, set-off or cross demand referred to in paragraph 40(1)(g) of the Bankruptcy Act, the affidavit must also state:
(a) the full details of the counter-claim, set-off or cross demand; and
(b) the amount of the counter-claim, set-off or cross demand and the amount by which it exceeds the amount claimed in the bankruptcy notice; and
(c) why the counter-claim, set-off or cross demand was not raised in the proceedings that resulted in the judgments or orders to which the bankruptcy notice relates.
16 The grounds of the application required to be in the supporting affidavit by the above Rules are necessarily intended and required to be grounds in respect of the sections or regulations identified in that application. That is, the application is required to identify the sections or regulations sought to be relied upon, and the accompanying affidavit is then required to identify the grounds pertaining to such provisions.
17 Sections 40(1)(g), 41(5), 41(6A), 41(6C) and 41(7) of the Bankruptcy Act provide as follows:
40 Acts of bankruptcy
(1) A debtor commits an act of bankruptcy in each of the following cases:
…
(g) if a creditor who has obtained against the debtor a final judgment or final order, being a judgment or order the execution of which has not been stayed, has served on the debtor in Australia or, by leave of the Court, elsewhere, a bankruptcy notice under this Act and the debtor does not:
(i) where the notice was served in Australia - within the time specified in the notice; or
(ii) where the notice was served elsewhere - within the time fixed for the purpose by the order giving leave to effect the service;
comply with the requirements of the notice or satisfy the Court that he or she has a counter-claim, set-off or cross demand equal to or exceeding the amount of the judgment debt or sum payable under the final order, as the case may be, being a counter-claim, set-off or cross demand that he or she could not have set up in the action or proceeding in which the judgment or order was obtained;
41 Bankruptcy notices
…
(5) A bankruptcy notice is not invalidated by reason only that the sum specified in the notice as the amount due to the creditor exceeds the amount in fact due, unless the debtor, within the time allowed for payment, gives notice to the creditor that he or she disputes the validity of the notice on the ground of the misstatement.
…
(6A) Where, before the expiration of the time fixed for compliance with the requirements of a bankruptcy notice:
(a) proceedings to set aside a judgment or order in respect of which the bankruptcy notice was issued have been instituted by the debtor; or
(b) an application has been made to the Court to set aside the bankruptcy notice;
the Court may, subject to subsection (6C), extend the time for compliance with the bankruptcy notice.
(6C) Where:
(a) a debtor applies to the Court for an extension of the time for complying with a bankruptcy notice on the ground that proceedings to set aside a judgment or order in respect of which the bankruptcy notice was issued have been instituted by the debtor; and
(b) the Court is of the opinion that the proceedings to set aside the judgment or order:
(i) have not been instituted bona fide; or
(ii) are not being prosecuted with due diligence;
the Court shall not extend the time for compliance with the bankruptcy notice.
…
(7) Where, before the expiration of the time fixed for compliance with the requirements of a bankruptcy notice, the debtor has applied to the Court for an order setting aside the bankruptcy notice on the ground that the debtor has such a counter-claim, set-off or cross demand as is referred to in paragraph 40(1)(g), and the Court has not, before the expiration of that time, determined whether it is satisfied that the debtor has such a counter-claim, set-off or cross demand, that time shall be deemed to have been extended, immediately before its expiration, until and including the day on which the Court determines whether it is so satisfied.
18 Any application to set aside a bankruptcy notice other than by reason of an offsetting claim cannot obtain the benefit of an automatic statutory extension of time to comply in s 41(7), but rather must be the subject of a successful application for an extension of time under s 41(6A). If an application relies upon both an offsetting claim and another ground, provided the application is valid (as discussed below) the automatic extension of time, as a matter of practicality, accrues to the benefit of both grounds by allowing time to determine both if they are dealt with at the same time. However, there is a problem if an application based on an offsetting claim is found to be invalid (as opposed to unsuccessful in outcome) as that will entail the time for compliance with the notice expiring and an act of bankruptcy occurring. It will also entail the six-month time limit for the presentation of a creditor's petition from the date of the act of bankruptcy provided for in s 44(1)(c) of the Bankruptcy Act commencing to run, and expiring if the application is not determined within that time.
19 In the case of a successful application to set aside a bankruptcy notice, the benefit of the automatic extension of the time to comply in s 41(7) accrues to the benefit of the debtor because no act of bankruptcy occurs. For an unsuccessful application, the benefit of the automatic extension of time to comply mainly accrues to the benefit of the creditor because a full six months in which to present a creditor's petition is preserved. The benefit of the debtor is (apparently deliberately on the part of the legislature), likely to be illusory because, if the application to set aside fails, a debtor has until midnight on the day of judgment to satisfy the bankruptcy notice or otherwise commits an act of bankruptcy. On this reasoning, the purpose of the automatic extension of time when a proper question is raised as to whether in truth there is a net bankruptcy debt is to enable the status quo to be maintained with no act of bankruptcy committed pending resolution of the application, and also to ensure that, if the application to set aside the bankruptcy notice is unsuccessful the time does not run for the next step in the bankruptcy process, being the presentation of a creditor's petition. With this characterisation in mind, common sense dictates that something more than a mere assertion is required for the debtor to obtain the benefit of the extension of time so as to avoid committing an act of bankruptcy. That common sense interpretation is backed by long-standing authority, discussed below.
20 However, it is also necessary to grapple with the problem that arises when an application is not valid and the time for reaching that conclusion has been more than six months from the date of the act of bankruptcy. The evident legislative purpose of s 41(7) was to protect debtors from an act of bankruptcy only for successful applications, not to put them in a better position than if they had never made an application to set aside the bankruptcy notice and that notice had operated according to its terms. It is difficult to see why a debtor applicant should be better off having made an invalid application that has the practical effect of exhausting the time for presenting a creditor's petition than they would be if they had made a valid but unsuccessful application, at the least without the Court having available to it a remedy to avoid this injustice.
21 In the last part of this judgment I give consideration as to whether there is a general power to extend the time for compliance with the bankruptcy notices in this case, and if so whether I should exercise such a power so that a creditor is not worse off by having to meet an invalid application to set aside the bankruptcy notice than meeting a valid but unsuccessful application to do so. For the reasons there set out, I am of the view that the power to extend the time for compliance with the bankruptcy notice under s 41(6A) of the Bankruptcy Act is triggered by an application to set it aside being filed within the time for compliance even if the application is not determined within that time. In my opinion, the s 41(6A) power is triggered by the fact of such an application being made and does not require the application to be found to be valid.
22 The meaning of the three terms in s 40(1)(g) and s 41(7) of the Bankruptcy Act "counter-claim, set-off or cross demand" was considered in the much cited case of Re Judd; Ex parte Pike (1924) 24 SR (NSW) 537 at 539-540 (emphasis added to the portion directly relevant to the deeds of assignment in this case):
There is no authority of which I am aware deciding what limits (if any) ought to be placed on the words "counter-claim, set-off or cross-demand". I think that the Legislature by the word "counter-claim" probably referred to those claims which might be the subject of a counter-claim in equity and by the word "set-off" to those claims which might be the subject of a set-off at common law. The other term "cross-demand", however, is not a technical term and must in my opinion refer to claims other than those which would be comprised in the two expressions "counter-claim" and "set-off".
Taking the ordinary meaning of the word itself, I can see no reason why "cross-demand" should not be held to include a claim for unliquidated damages for a tort. The case of Re Griffin; Ex parte Soutar (1 B.C. 29) shows that "cross-demand" includes a claim for unliquidated damages for breach of contract. In the case of Re Smyth; Ex parte North (3 B.C. 17) a common law action of Smyth v. North is referred to as constituting a cross-demand. I have sent for and perused the papers in this case and here again it appears that the cause of action was a claim for unliquidated damages for breach of contract. Two recent cases in England - In re G.E.B. ([1903] 2 K.B. 340) and In re A Debtor ([1914] 3 K.B. 726) - show that the cross-demand need not have any connection with the cause of action out of which the judgment debt arose - so much so, that a judgment debtor may even buy up a claim against the judgment creditor in order to have a "cross-demand". These cases are all in favour of an unrestricted meaning being given to the word.
23 A key aspect of the phase "counter-claim, set-off or cross demand" is that the bankruptcy debt and the offsetting claim sought to be relied upon must be "mutual and due in the same right". As was stated by the Full Court in Stec v Orfanos [1999] FCA 457 at [24]:
… Where a debtor seeks to set aside a bankruptcy notice on the ground that the debtor has a cross demand which equals or exceeds the amount of the judgment or order on which the bankruptcy notice is founded, the judgment on the one hand and the cross demand on the other must be mutual and due in the same right: Re Anderson; Ex parte Alexander (1927) 27 SR (NSW) 296; James v Abrahams (1981) 51 FLR 16 at 27. The requirement that the two claims be "in the same right" is directed to the capacities in which the claimants claim. Thus a claim by a judgment creditor personally cannot be answered by a claim against the creditor as a member of a partnership or as an executor or trustee. See Re Wedd; Ex parte Wedd (1961) 19 ABC 36; Re Molesworth (1907) 51 Sol J 653; Vogwell v Vogwell (1939) 11 ABC 83 at 89. But the requirement relevant to the present case is that the claims be mutual; that is that they be of the same kind or nature. Thus joint debts cannot be set off against several debts: Middleton v Pollock (1875) LR 20 Eq 515 at 518. …
24 It follows that the particular offsetting claim relied upon by James and Ljiljana may best be characterised as a "cross demand", although nothing turns on this. These reasons will therefore continue to use the generic term "offsetting claim" as the relevant principles do not change according to the particular type of ss 40(1)(g) and 41(7) claim relied upon.
25 The effect of s 41(7) of the Bankruptcy Act, when it is engaged, is that, if the application to set aside the bankruptcy notice has not been heard and determined prior to the time for compliance with it, that time is deemed to have been extended immediately before the date for compliance until and including the day upon which the Court determines whether it is satisfied that the debtor has established an offsetting claim equal to or exceeding the debt upon which the bankruptcy notice is based.
26 A challenged application to set aside a bankruptcy notice may give rise to several issues before its merits are considered, although the nature and apparent strength of the underlying case may be relevant. Those possible issues in this case include:
(1) whether a competent application has been filed so as to engage the jurisdiction of the Court in the first place; and
(2) if the application is competent, the extent to which such a valid application may be enlarged by subsequent grounds, arguments or evidence.
27 The jurisdictional requirement of a competent application has been expressed in a variety of ways in the authorities, but substantially to the same end.
28 In Re Brink; Ex parte Commercial Banking Co of Sydney Ltd (1980) 44 FLR 135; (1980) 30 ALR 433 at 439.6 it was acknowledged that if a valid application to set aside a bankruptcy notice has been brought, this Court plainly has power to permit the debtor to supplement the case brought with additional evidence. However, that was predicated upon there being a valid application in the first place. While courts should adopt "a benevolent construction to the initial affidavit", being the affidavit accompanying the application which brings s 41(7) "into play", especially having regard to the tight timeframe within which an application must be brought to set aside a bankruptcy notice and the practical difficulties in providing more than a mere outline of the case to be brought, nonetheless this will not be enough to overcome an inherent defect: see 440-1. In Re Brink, the inherent and fatal defect was a failure to indicate that the offsetting claim could not have been set up in the prior proceedings. In those circumstances, the original affidavit did not answer the description of the affidavit required for the purposes of s 41(7), so was not valid.
29 In Re James; Ex parte Carter Holt Harvey Roofing (Australia) Pty Ltd (1993) 46 FCR 183, Hill J observed at 188-9:
… The affidavit of which s 41(7) speaks must do more than merely assert the existence of a cross-claim etc of the relevant value. It must contain evidence which establishes that there is an effective cross-claim, a claim that is real; cf Lukin J in Re Vogwell; Ex parte Vogwell (1939) 11 ABC 75 at 77, affirmed on appeal by the High Court in Vogwell v Vogwell (1939) 11 ABC 83 at 85; Ebert v Union Trustee Co of Australia Ltd (No 2) (1960) 104 CLR 346 at 350 Re McKechnie; Ex parte Weir (1991) 27 FCR 515 at 519-20 per Foster J. This is so because the affidavit in question is required to "show" a relevant counter-claim, set-off or cross-demand. An insufficient affidavit does not bring the provisions of s 41(7) into operation.
Although the debtors filed out of time an affidavit setting out the facts upon which they would rely to show a relevant cross-claim, cross-demand or cross-action, that affidavit, while it might be read to expand matters in an affidavit otherwise complying with s 41(7) filed in time, cannot be used to supplement any deficiency where no sufficient affidavit has been filed within the terms of s 41(7).
30 In Re Donkin; Ex parte AGC Advances Limited (1994) 52 FCR 271 the test was expressed somewhat differently, although ultimately not disagreeing with Re James. At 277D-G it was said:
In Re Cocciolone (unreported, Federal Court, Cooper J, 30 May 1994), his Honour reviewed the authorities, including Re Brink, and held that in order to determine whether an affidavit is sufficient for the purposes of s 41(7) (at p 5):
"The requisite approach is one that requires a determination of whether there is a bona fide reliance on section 41(7) of the Act and whether there is identified a cause or causes of action which arise out of an outline of facts relied upon by the judgment debtor."
Like Cooper J in Re Cocciolone, I do not regard the comments of Hill J in Re James; Ex parte Carter Holt Harver Roofing (Australia) Pty Ltd (1993) 46 FCR 183 as supporting the proposition that explicit proof of each element of the cause of action said to give rise to the cross-demand is required in the affidavit relied on to bring the subsection into operation.
An outline of the cause of action relied on by the debtor to constitute the cross-demand, with sufficient accompanying detail to show that the debtor is bona fide in his contention that he has such a cross-demand, is all that is required of the initial affidavit. For the reasons I have already given, I think the applicant's affidavit of 16 June 1994 is sufficient to enliven s 41(7).
It is unnecessary to express any final view on the extent to which a debtor can properly rely on material supplementary to the material filed within the time allowed by the bankruptcy notice for compliance with the demand there made, when the matter comes before the Court and the debtor is seeking to satisfy the Court that he has the requisite cross-demand. However, it is at least permissible for a debtor then to rely on "evidence supplementing the earlier affidavit for the purpose of explication without going beyond its scope": Re Laybutt; Ex parte Robinson (unreported, Federal Court, Beaumont J, 26 June 1985) and on material which expands on matters in the affidavit filed within time, although the debtor cannot supplement any deficiency in that material where no sufficient affidavit has been filed within the time allowed by s 41(7) and the relevant bankruptcy notice: Re James; Ex parte Carter Holt Harvey Roofing (Australia) Pty Ltd (supra).
31 In Webb v Hunter (1995) 59 FCR 24, the Full Court endorsed the conclusion expressed in a number of single judge decisions, including the above-mentioned cases of Re Brink and Re James, as well as the prior Full Court decision in James v Abrahams (1981) 51 FLR 16, to the effect that an accompanying affidavit which, when considered benevolently, plainly does not fall within the description contained within s 41(7) of the Bankruptcy Act means the application is invalid. The affidavit in that case was found not to comply, and was therefore invalid, because (at 30.5) "[i]t contains no evidence which goes to establish that there is any real or effective cross-claim. Nor does it "show" on its face any relevant counterclaim, set-off or cross-demand."
32 In Foyster v ANZ Banking Group Ltd [1999] FCA 1032 it was said at [7]:
If there had been no affidavit filed, which satisfied the requirements of section 41(7), there would have been no automatic extension of time under that provision. However, once the statutory stay provided for in section 41(7) comes into play, there does not appear to me to be any reason in principle why the Debtor should not be entitled to satisfy the Court as to any matter within section 40(1)(g). In Re Brink; ex parte Commercial Banking Company of Sydney Ltd (1980) 44 FLR 135, which was cited with approval by the Full Court in Eastick v Australia and New Zealand Banking Group Ltd (1981) 53 FLR 91, Lockhart J indicated that, upon the hearing of a matter under section 41(7), the Court has before it the initial affidavit which brings section 41(7) into play. There may, of course, be no other evidence. On the other hand, there may be a great deal of evidence. That will depend upon the circumstances of each case. The Court has power to permit the debtor to supplement his case by additional evidence.
33 Although not entirely clear, Foyster suggests that a valid set aside application based on an offsetting claim within the scope of ss 40(1)(g) and 41(7) and made within the time for compliance with the bankruptcy notice may be enlarged or added to. But Foyster does not suggest that should extend to types of grounds not raised (as required) in the affidavit accompanying the original application to set aside a bankruptcy notice. That makes sense because the regime for an automatic extension of time to comply with the bankruptcy notice only applies to offsetting claims. Any other separate claim, such as a pending application to set aside the judgment upon which the bankruptcy notice was based, requires an application for and the granting of an extension of time.
34 There is no suggestion in the authorities discussed that enlarging an application would, or could, extend to an asserted offsetting claim that did not exist at all at the time that the application was made. That would be contrary to the clear and express present tense language in s 41(7) of the Bankruptcy Act: "… the debtor has applied to the Court for an order setting aside the bankruptcy notice on the ground that the debtor has such a counter-claim, set-off or cross demand…". That interpretation is supported by authority that indicates that the offsetting claim must in fact exist, as well as be of some evident substance. In Cirillo v Consolidated Press Property Pty Ltd [2007] FCA 139; (2007) 5 ABC(NS) 225, it was noted at 231 [23]:
It is well accepted that in proceedings under s 41(7) the affidavit material in support of an application must do more than merely assert the existence of a counter-claim etc. It must contain evidence which establishes that there is an effective and bona fide claim which is real. …
35 To like effect as Cirillo, in O'Meara v Deputy Commissioner of Taxation [2009] FCA 1575 it was observed at [10]:
Although the application was filed before the expiration of the time fixed for compliance with the Bankruptcy Notice, no affidavit satisfying the requirements of either para (b) of sub-rule 3.02(1) or sub-rule 3.02(2) was filed by Mr O'Meara before the expiration of that time. It follows that whether Mr O'Meara relies on para 40(1)(g) (when sub-rule 3.02(2) would be relevant) or some other ground (when para (b) of sub-rule 3.01 would be relevant) to set aside the Bankruptcy Notice, his application is not competent. It is as if no application to set aside the Bankruptcy Notice was ever filed. Moreover, because the deemed extension of time under s 41(7) is not triggered and in the absence of an actual extension of time for compliance with the Bankruptcy Notice, Mr O'Meara committed an act of bankruptcy on the expiration of the time prescribed in the Bankruptcy Notice for compliance with its requirements.
36 The reference in O'Meara above to "[i]t is as if no application to set aside the Bankruptcy Notice was ever filed" does not deny the fact of an application being filed, but rather its legal effectiveness to trigger an automatic extension of the time for compliance with the bankruptcy notice.
37 A number of decisions of the former Federal Magistrates Court of Australia, now the Federal Circuit Court of Australia, which is now the primary forum for bankruptcy disputes, have applied similar reasoning: see for example Swarbrick v Burge [2009] FMCA 985; (2009) 236 FLR 311 at 323 [49], 324 [54]; and Spottiswood v Equititrust Ltd [2010] FMCA 819; (2010) 245 FLR 395 at 399-400 [13]-[16].
38 Some additional guidance or support for the reasoning above may be gleaned from the parallel jurisdiction of statutory demands under the Corporations Act 2001 (Cth), paying due regard to the important statutory differences between the two regimes. In Graywinter Properties Pty Ltd v Gas & Fuel Corporation Superannuation Fund (1996) 70 FCR 452 at 459, a distinction was drawn between the sufficiency of a supporting affidavit to enliven jurisdiction for an application to set aside a statutory demand and the evidence that might be relied upon to make good the case at the hearing of application. The former requirement was regarded as being more in the nature of pleadings and went to the competency of the application in the first place by meeting minimum requirements. The latter went to its ultimate success once validity, if questioned, was established.
39 In Fitness First Australia Pty Ltd v Dubow [2011] NSWSC 531; (2011) 251 FLR 241, another statutory demand case, compliance with the so-called "Graywinter principles" was considered. Numerous other authorities were considered and at 271 [122] it was noted that although an applicant may supplement the initial affidavit or affidavits filed within time by leading further evidence, reliance could not be placed on any ground not raised in such an affidavit.
40 It follows from the above authorities that for an application to set aside a bankruptcy notice to be competent and trigger the automatic statutory extension of time for compliance in s 41(7), the offsetting claim must be "effective" or "real" at the time the application is made; it must be bona fide; it must on its face show a relevant offsetting claim. Such a jurisdictional requirement for a competent application cannot be supplemented after the time for compliance has expired because that is too late to engage jurisdiction and trigger an extension of time. The terms of s 41(7) do not contemplate or allow the automatic extension of time to take place unless the application is made within the time for compliance contained in the bankruptcy notice. The application is either competent and thus valid at the time it is made, and triggers the automatic extension of time, or it is not competent and is thus invalid and no such extension of time is triggered.
41 The above ostensibly bright-line test will not always be easy to assess, because it requires a determination as to what is meant by "effective", "real", bona fide or showing a relevant offsetting claim. It may also give rise to a live question as to what must be determined at the outset as a question of validity, and what can properly await the final determination of the application on its merits.
42 At the very least, on its face the application must be legally capable of succeeding on the basis of the offsetting claim then identified as existing and relied upon, even if more evidence might be required by the time of the hearing in order for the court to reach the requisite degree of satisfaction for a final determination. It is in the nature of a legal capacity test, rather than a sufficiency of evidence test. It is directed to enabling the application to proceed to a hearing, rather than determining its ultimate success. If the application on its face is not capable of succeeding because of a manifest defect or deficiency, then it will not be valid and nothing can later be done to remedy this.
43 The question of what is necessary for a valid application to set aside a bankruptcy notice based on an offsetting claim to succeed at a final hearing of the application is evaluative in terms of the sufficiency of the case advanced. In Vogwell v Vogwell (1939) 11 ABC 83 at 85, Latham CJ said of the equivalent provision in the Bankruptcy Act 1933 (Cth):
… What the section contemplates is a claim to the enforcement of a right sounding in money. It must be a real claim ; it is insufficient that the debtor believes that he has a claim, and the authorities show that the matter to which the court looks is this, - whether it is just that the claim should be determined before the bankruptcy proceedings are allowed to continue ; in other words, whether it is a claim which it is proper and reasonable to litigate. …
44 In this case, there is no issue of any outstanding litigation in relation to the existence of the offsetting claims relied upon by James and Ljiljana, other than arguably as to the quantum of the final entitlement to costs able to be enjoyed by the beneficiaries (or lawful assignees) of the costs orders against Prentice, which are mostly still undergoing a process of taxation.
45 The above statement of principle in Vogwell was endorsed in Guss v Johnstone [2000] HCA 26; (2000) 171 ALR 598 at 606 [39]. Their Honours went on to say as to the final determination of an application to set aside a bankruptcy notice (at [40]):
The state of satisfaction referred to in s 40(1)(g), and s 41(7) involves weighing up considerations as to the legal and factual merit of the claim relied upon by the debtor, and the justice of allowing the bankruptcy proceedings to go ahead or requiring them to await the determination of the claim.
46 In Guss v Johnstone at 607 [43], the High Court recorded the observation before the Full Court of this Court in that case before whom counsel had candidly acknowledged that the offsetting claim had to exist also at the time when the application to set aside the bankruptcy notice is heard. However, consistently with the above analysis, a sufficient claim must first be made at the time the application was lodged for the automatic extension of time to be triggered in the first place.
47 In Ebert v The Union Trustee Company of Australia Limited (1960) 104 CLR 346 it was observed as to the final determination of an application to set aside a bankruptcy notice at 350:
… the debtor must show that he has a prima facie case, even if then and there he does not adduce the admissible evidence which would make out a prima facie case before a court trying the issues that are involved in his counter-claim, set-off or cross demand.
48 The burden of authority as to enlarging grounds does not support any freestanding right or entitlement to litigate later advanced additional grounds in support of an application to set aside a bankruptcy notice, assuming a valid application was made within the time for compliance with that notice. Moreover, there is a public interest in ensuring that the enforcement of debts by way of bankruptcy notices does not become mired in the sort of litigation that often gave rise to a judgment debt in the first place. In part that is because bankruptcy notices are an important part of the means by which civil laws are enforced and the orders of courts are thereby given real substance and meaning. While bankruptcy is a dire consequence of not paying debts arising from enforceable orders of the court, it is a vitally important ultimate remedy that helps to enhance the overall integrity of civil justice.
49 Even if leave may be given to amend an otherwise valid application to set aside a bankruptcy notice and even if leave may be given to supplement the grounds in support of such an amendment such as by way of a further accompanying affidavit, that should be treated in the same manner as final pleadings, with such amendments and supplements not lightly countenanced. The now well-established principles in relation to amending pleadings in Aon Risk Services Australia Limited v Australian National University [2009] HCA 27; (2009) 239 CLR 175 at 211-213 [93]-[98] and since reflected in ss 37M, 37N and 37P of the Federal Court of Australia Act 1976 (Cth) should apply to any power to amend the effective pleadings constituted by the affidavit accompanying an application to set aside a bankruptcy notice. An application for leave to enlarge the grounds upon which a bankruptcy notice is sought to be set aside should be closely scrutinised. Leave, assuming there is power to grant it, should not be given to rely upon additional unmeritorious or otherwise questionable claims, especially if they have the effect of inordinately delaying determination of the application.
50 The focus in considering any permissible application to enlarge the grounds sought to be relied upon in an application to set aside a bankruptcy notice must at all times remain on the dictates of justice and not merely on individualistic ideas of what is fair in a given case, as mandated by Expense Reduction Analysts Group Pty Ltd v Armstrong Strategic Management and Marketing Pty Limited [2013] HCA 46; (2013) 250 CLR 303 at 323 [57]. At the same time, considerable weight should be given to the modern view of bankruptcy notices, namely that any alleged defects sought to be relied upon to set them aside should truly involve the debtor being misled as to what he or she must do in order to comply with the notice: see Adams v Lambert [2006] HCA 10; (2006) 228 CLR 409, discussed in some detail below. That is not to say that some defects in a bankruptcy notice cannot be so fundamental that it cannot survive even without such a capacity to mislead, but that is now a very narrow category that ordinarily should be apparent if so misleading or fundamental as to be identified at the outset. The reasoning in Adams v Lambert, both in relation to s 306(1) of the Bankruptcy Act and more generally, discourages unduly technical and pedantic objections to bankruptcy notices, and should discourage the exercise of any power by the Court to grant leave to run additional grounds of that nature.