(c) Fresh step and the Bankruptcy Act 1966 (Cth)
58Ms Thomson also relies on s 58(3) of the Bankruptcy Act 1966 (Cth), submitting:
"Furthermore, it was not competent for the Cross-Claimants to take a fresh step in the proceedings without leave of the Federal Court of Australia: Bankruptcy Act 1966, section 58(3). A fresh step includes the making of an order by the Court on the application of any party: Gertig v Davies (2003) 85 SASR 226 at [63] - [64] per Doyle CJ with whom Mullighan J agreed.
In these circumstances, the Court should exercise its inherent power to set aside the Order dismissing the Cross-Claim against Mr Shnider with no order as to costs".
59The submission that the inherent power of the District Court included a power to set aside an order made in contravention of s 58(3) of the Bankruptcy Act 1966 (Cth) was not developed in argument and no authority was cited to support it.
60However, rule 36.15 of the Uniform Civil Procedure Rules 2005 allows judgments given or enforced irregularly to be set aside. Is the order of Johnstone DCJ on 1 February 2012 such a judgment by reason of s 58(3)?
61Section 58(3) provides:
"(3) Except as provided by this Act, after a debtor has become a bankrupt, it is not competent for a creditor:
(a) to enforce any remedy against the person or the property of the bankrupt in respect of a provable debt; or
(b) except with the leave of the Court and on such terms as the Court thinks fit, to commence any legal proceeding in respect of a provable debt or take any fresh step in such a proceeding."
62In this section, "the Court" means "a Court having jurisdiction in bankruptcy under this Act" (s 5 of the Bankruptcy Act 1966 (Cth)). The District Court does not have jurisdiction in bankruptcy (see s 27 of the Bankruptcy Act 1966 (Cth)). It follows that leave of "the Court" was not given.
63For a lack of competence pursuant to s 58(3) of the Bankruptcy Act 1966 (Cth) to be established, there must be a creditor, taking a fresh step, in respect of a provable debt.
64A creditor ordinarily is a person to whom money is owed. In bankruptcy legislation the term usually refers to a person entitled to prove in the bankruptcy: see Staples and Another v Milner and Others (1998) 83 FCR 203; Zantiotis v Andrew (No 2) (1988) 80 ALR 299 at 302. In the present case, Ms Thomson does not identify who is the putative creditor under s 58(3). Perhaps it is Mr Wachtenheim, since he was the party suing Mr Shnider.
65However, Mr Wachtenheim was not a creditor of Mr Shnider. He was not entitled to prove in Mr Shnider's bankruptcy. A claim based on misleading conduct, the claim made against Mr Shnider, is insufficient to make Mr Wachtenheim a creditor. Section 82(2) of the Bankruptcy Act 1966 (Cth) provides that "Demands in the nature of unliquidated damages arising otherwise than by reason of a contract, promise or breach of trust are not provable in bankruptcy". A claim arises "by reason of a contract" only if the debtor (in this case, Mr Shnider) is a party to a contract (see Australian Competition and Consumer Commission (ACCC) v Kritharas (2000) 105 FCR 444 at [36]-[38], Coventry v Charter Pacific Corp Ltd (2005) 227 CLR 234; [2005] HCA 67 at [62], [71]).
66In the present case, no contract with Mr Shnider was alleged. Even if a contract with De Costi Seafoods resulted from Mr Shnider's conduct that is insufficient for the purpose of s 82(2) of the Bankruptcy Act 1966 (Cth).
67The expression "fresh step" includes any step that advances the proceedings towards judgment (ANZ Banking Group Ltd v Computer Plus [1992] 1 VR 607 at 608, 610) or "a step taken towards the satisfaction of [a] debt" (see Fraser v Commissioner of Taxation (1996) 69 FLR 99 at p 115). Dismissal of the claims with no order as to costs does not advance the proceedings towards judgment and cannot be "a step taken towards the satisfaction of [a] debt". It is not advancing the creditor's claim.
68In addition, Mr Wachtenheim has not taken any step, let alone a fresh step. There is no application by Mr Wachtenheim for any costs order. Rather, the transcript reveals that the order was made of the Court's own motion, not only in respect of costs but also in respect of dismissal of the cross-claim. Mr Newell as Mr Wachtenheim's counsel informed the Court that the cross-claim was not being maintained. No order was sought, or opposed, by any person present. The Court evidently determined that since no party was seeking costs, it was appropriate to make an order that the cross-claim be dismissed and that there be no order as to costs, so as to finalise the matter (cf ss 56 and 57 of the CPA).
69Ms Thomson relies upon the decision of Gertig v Davies [2003] SASC 86. In that case, Doyle CJ (with whom Mullighan J agreed at [69]) stated at [63]:
"But in my view the 'fresh step' of claiming an order for a set-off was not completed on the day on which the application was made orally by counsel. That step was still being taken when the Judge heard submissions on a later day."
70This paragraph does not assist Ms Thomson. No relevant submissions in respect of the costs order were made before Johnstone DCJ after the date of the bankruptcy.
71But Doyle CJ continued in [63]:
"I would not read the reference to taking 'any fresh step' as referring only to the oral making of the application. I would read it as extending to the hearing of the application and to the making of a decision on the application."
72This last sentence does not identify whether the learned Chief Justice would regard the decision alone as a fresh step. Rather, it indicates that a hearing and decision, together constitute a fresh step.
73The Chief Justice continued at [64]:
"[64] If I am wrong in that, and the making of the application [before the bankruptcy] was itself the relevant fresh step, I would nevertheless hold that the pronouncement of the order for a set-off is itself a fresh step. In other words, I would distinguish between the application and the order. I appreciate that the order is made by the Court, while the application was made by counsel for Mr Gertig. But an order pronounced on an application made by Mr Gertig remains, in my opinion, a step in the proceeding taken by Mr Gertig. In other words, I would regard an order made on application by a party as a step in the proceedings by that party."
74The initial words in the quoted paragraph indicate that the passage is obiter. If so, I am not bound to follow it. Besanko J dissented, stating at [80]:
"It is important to note that the words used in s58(3)(b) are 'fresh step' and not simply any 'step' in the proceeding. It is also important to note that it is a fresh step taken by a creditor. Ordinarily a person takes a step in a proceeding by issuing an application seeking certain orders. It is possible to say that attendance at a hearing and the making of submissions is a step in the proceeding, but I do not think it can be said to be a fresh step. Nor do I think that it can be said that the act of a Judge in proceeding to consider and then determine a matter is a fresh step taken by a creditor."
75Besanko J gave the following reasons at [81]:
"I think that there are a number of matters which support the view I take, although I accept that they are not compelling. First, the time at which an application is heard will often be beyond the control of a creditor, and the time at which it is determined will almost certainly always be beyond the control of a creditor. Secondly, one would assume that any leave given would be for the taking of a step clearly defined in the grant of leave. I accept that it is possible to frame a grant of leave in this case, but I think there is some awkwardness about doing so. Thirdly, and this is a negative factor I suppose, I do not think the interpretation I propose runs counter in any way to the purposes of the statutory scheme (Re McMaster; Ex parte McMaster (1991) 33 FCR 70 per Hill J at 72 - 73). It is true that s58(3)(b) is to be interpreted broadly, but at the same time I note the Legislature has not seen fit to frame the section in terms that clearly prohibit (without leave) any further action in the proceeding."
76The decision in Gertig was considered briefly in Australian Competition & Consumer Commission v The Bio Enviro Plan Pty Ltd [2004] FCA 415, a case concerned with whether the "filing of submissions and making of final orders" constituted a fresh step. RD Nicholson J at [7] adopted the majority view:
"that the hearing of an application made prior to bankruptcy and the making of a decision on such an application constituted a 'fresh step' in the proceeding". (Emphasis added).
77The obiter remarks in Gertig are most directly supported in Permanent Custodians Ltd v Agb Developments Pty Ltd [2010] NSWSC 540 at [63], where Davies J held:
"The making of an order is a step in the proceeding taken by the Plaintiff and notwithstanding that the application was made, and the hearing conducted, prior to the making of the sequestration order: Gertig v Davies...(2003) 85 SASR 226 at [64]-[66]."
(See also Charitopoulos v Deputy Commissioner of Taxation [2009] SADC 120).
78Bovaird v Frost [2013] FCA 974 at [4] referred to both Gertig and also Fraser Property Developments Pty Ltd v Sommerfeld (No 2) (2005) 2 Qd R 404; [2005] QCA 242, without needing to decide what constituted a fresh step.
79Fraser Property Developments Pty Ltd is a unanimous decision of the Queensland Court of Appeal and is inconsistent with Gertig but does not refer to it. At 407, [7] McPherson JA, with whom Williams JA (at [15]) and Philippides J (at [16]) agreed, stated:
"No authority has been found suggesting that mere argument in support of an appeal amounts to taking a 'fresh step' in the proceeding. I am disposed to the view that it is not. The order of the court allowing the appeal may conceivably be a fresh step in the proceeding; but it was taken not by the 'creditor', if that was what the Council was, but by this Court, and so is not within the prohibition imposed by s. 58(3)(b)."
80Accordingly, an order by the court is not a fresh step by a creditor, even if it "may conceivably be a fresh step in the proceeding". With respect, I agree with this proposition, and I am bound by it.
81Further, Mr Wachtenheim's misleading conduct claim against Mr Shnider was not a "provable debt", for the reasons given at [65] above. Fraser Property Developments Pty Ltd also considered the circumstance of an order for costs. Although this passage is not short, it is worthy of repetition particularly as it appears to apply directly to the present circumstances. McPherson JA in Fraser Property Developments Pty Ltd stated at [8]-[12]:
"[8] The question remains whether making an order for costs amounts or would amount to a 'fresh step' in that proceeding and if so, whether, it is taken 'in respect of a provable debt' within the meaning of s. 58(3)(b) of the Act. Which debts are provable in bankruptcy is governed by s. 82 of the Act. Under s. 82(1) they include all debts and liabilities present, future, certain or contingent, to which a bankrupt was subject at the date of the bankruptcy:
'... or to which he ... may become subject before his ... discharge by reason of an obligation incurred before the date of the bankruptcy ...'
[9] Sommerfeld was not at the date of his bankruptcy subject to any order to pay costs to the Council. It might be said that having instituted the proceeding to compel removal of the action into the Tribunal, he thereby incurred a liability to pay the costs of an appeal by the Council if, as proved to be the case here, it was successful. But quite apart from the possibly limiting effect of s. 82(8), it is settled by authority in England that the mere prospect of an order for costs against the bankrupt, or the contingency that it might be made, is not a liability provable in bankruptcy.
[10] The authorities go some way back in time. In Vint v. Hudspith (1885) 30 Ch.D. 24, 27, Lindley L.J. said that he doubted 'very much' whether the possibility of having to pay costs is a provable debt, although it might in some cases be a contingent liability. An opportunity for his Lordship to expand on his views arose in Re British Gold Fields of West Africa [1899] 2 Ch. 7, which concerned an order for costs in favour of a shareholder for the rectification of the share register and for repayment by the company of a sum paid for the shares. The proceedings were initiated before winding up (which was the equivalent of bankruptcy for present purposes), but were not successfully completed until after it took place. In delivering the judgment of the Court of Appeal, Lindley M.R. said ([1899] 2 Ch. 7, 11) that if an action was brought against a person, who afterwards became bankrupt, to recover a sum of money, and the action was successful, the costs were regarded as an addition to the sum recovered and so provable if the debt was provable 'but not otherwise'. If the sum recovered is not provable, said his Lordship, 'neither are the costs of recovering it'. Speaking of a case in which no verdict is given and no order was made for payment of costs until after bankruptcy, Lindley M.R. continued (at p. 12):
'In such a case there is no provable debt to which the costs are incident, and there is no liability to pay them by reason of any obligation incurred by the bankrupt before bankruptcy; nor are they a contingent liability to which he can be said to be subject at the date of his bankruptcy. This was the case of Vint v. Hudspith.'
[11] What was said by Lord Lindley there has since been followed and applied in a number of English decisions, of which the most recent is Glenister v. Rowe [2000] Ch. 76. There the creditor Mrs Rowe sued her solicitor Glenister for negligence and breach of trust. The action was struck out by Millett J. in 1991, but an appeal against that order succeeded in 1995 after Glenister had been made bankrupt in 1992. He was discharged from bankruptcy in 1995 shortly before the Court of Appeal allowed Mrs Rowe's appeal with costs later taxed at some £15,000. Applying what was said in Re British Gold Fields of West Africa, the Court of Appeal held that the order for costs against Glenister was not a debt provable in bankruptcy and so was enforceable after his discharge. The English bankruptcy legislation (s. 382 of the Act of 1986), although now differing slightly from s. 82 in Australia, has been altered in the direction of admitting debts that would previously not have been provable. Nevertheless, Mummery L.J., with whom the other Lords Justices agreed, said ([2000] Ch. 76, 84):
'(3) The fact that an order for costs (a) creates an obligation to pay money and (b) is a contingency in legal proceedings is not sufficient, however, to make a claim that the court should exercise its discretion to make such a order a 'contingent liability' of the person against whom such an order may ultimately be made. It is accepted that before an order is made there is no present liability to pay. Nor can there be a future liability: there is no certainty that the court will exercise its discretion to make such an order. If, as some of the authorities hold, a contingent liability must arise out of an existing or underlying liability, no such liability can exist simply by reason of a claim for costs made in a writ, summons, application or notice of appeal to the judge or to the Court of Appeal.'
Among those authorities, was Community Development Pty Ltd v. Engwirda Construction Co. (1969) 120 C.L.R. 455.
[12] The principle applies in the present case. A potential or contingent liability for costs is not a provable debt unless an order for payment of those costs has been made before bankruptcy intervenes. As can be seen from Glenister v. Rowe [2000] Ch. 76, 84, the underlying reason is that costs of legal proceedings are in the discretion of the court; and until an order is made there is no obligation or liability to pay them. On this footing the Council could not prove its debt or claim for its costs of the appeal in the present case or of the proceedings below. It is not a 'provable debt' within the meaning of s. 58(3)(b). Leave of the Court (which means the Bankruptcy Court, now the Federal Court) is not required under s. 58(3)(b) because, even if it is 'a fresh step', it is not in a proceeding 'in respect of a provable debt'. The case is not one in which it can be said that there is a provable debt to which an order for costs is or would be incidental in the sense laid down in Re British Gold Fields of West Africa. The 'proceeding' instituted by Sommerfeld was not to recover a sum of money, but for an order that the plaintiff Fraser Property Developments discontinue its action in the Supreme Court and re-institute it before the Tribunal. The Council as the third defendant opposed the making of that order, and it has been successful on appeal. Its right to obtain an order for the costs of the appeal or of the proceedings in the Supreme Court is not obstructed by s. 58(3)(b) of the Bankruptcy Act. This view accords with the decision of Bergin J. in Australian Securities and Investments Commission v. Loiterton (2004) 50 A.C.S.R. 693, 735, in which her Honour applied Re British Gold Fields of West Africa [1899] 2 Ch. 7, at 11-12."
82Accordingly, a potential or contingent liability for costs is not a provable debt, and thus falls outside s 58(3).
83Any entitlement of Mr Shnider to a costs order - the converse of the claim by Mr Wachtenheim - is not a provable "debt" in the bankruptcy. If it existed at all it would be an asset.
84On 7 November 2011 Searle wrote in respect of maintaining its claim for costs (which it subsequently abandoned), "This firm is a secured creditor and therefore we do not need instructions from the trustee".
85If this assertion is correct, and there is no evidence before me to dispute it, Searle's entitlement to costs also falls outside the bankrupt's estate as there is no evidence to establish the matters in Division 1 of Part VI of the Bankruptcy Act 1966 (Cth) that would entitle Searle as a secured creditor to prove in the bankruptcy. But no claim is now made by Mr Shnider (or Searle) apart from the claim made by Ms Thomson. Any such claim was withdrawn on 7 December 2011.
86Thus, as tersely submitted on behalf of Mr Newell:
"The making of the order by Johnstone DCJ did not result from a creditor taking a fresh step in a proceeding in respect of a provable debt. The cross-claimants were not creditors of Mr Shnider, they did not take a fresh step; and the proceedings were not in respect of a provable debt" (emphasis in original).
87For these reasons, I do not regard the order made by Johnstone DCJ on 1 February 2012 as constituting a fresh step by a creditor in the proceedings in respect of a provable debt. Section 58(3) of the Bankruptcy Act 1966 (Cth) is therefore inapplicable.