(d) Meaning of "persons who commonly invest in securities"
97 What does the expression "persons who commonly invest in securities" in s 677 mean?
98 First, this expression is not defined. Moreover, it does not use the language of small or large, sophisticated or unsophisticated, or retail or wholesale investor.
99 Secondly, the expression "in securities" is broader than "ED securities". The section uses the expressions "price or value of ED securities of a disclosing entity" and concludes with "the ED securities". The definite article in the latter phrase is a reference back to the first part of the phrase "ED securities of a disclosing entity". Further, the express reference to ED securities is to a subset of securities, which is perfectly understandable given the context of s 677 in Chapter 6CA. Accordingly, the text of s 677 uses a broader concept for "securities" in the phrase "commonly invest in securities". In our view, as a matter of text and context, there is no reason to give "securities" in that phrase any narrower meaning than its definition in s 92(3), which is expressed to specifically apply to Chapter 6CA. One appreciates from s 92(3) that "securities" can embrace listed and unlisted shares, debentures, options, interests in managed investment schemes and the like. But what is apparent is that it is not confined to listed securities, securities of the same type or class of the ED securities or of the same sector as the entity that has issued the ED securities.
100 Thirdly, the phrase "commonly invest in securities" in s 677 may be contrasted with the phrase "commonly invest in securities of a kind whose price or value might be affected by the information" in s 676. The limiting words "of a kind …" in s 676 do not appear in s 677. Textually then, the contrasting language between s 676 and s 677 demonstrates that the phrase in s 677 is broader than persons who commonly invest in securities of a kind whose price or value might be affected by the information.
101 Fourthly, we have considered the legislative background to these provisions and relevant extrinsic material, but such does not assist in explaining why different language was used. The legislative history of these provisions has been conveniently set out in Australian Securities and Investments Commission v Southcorp Ltd (No 2) [2003] FCA 1369; 130 FCR 406 at [7] to [16] per Lindgren J and Australian Securities and Investments Commission v Fortescue Metals Group Ltd (No 5) [2009] FCA 1586; 264 ALR 201 at [218] to [226] per Gilmour J. The September 1991 Report of the Companies and Securities Advisory Committee recommended that a statutory based enhanced disclosure system be implemented by inclusion into the then Corporations Law (page 9). It favoured the then general test of materiality as found in s 1022(1) of the Corporations Law (the general disclosure then required under a prospectus, viz. "… all such information as investors … would reasonably require … for the purpose of making an informed assessment …"), with the addition of the Listing Rule test(s) (pages 10 and 21), but did not elaborate. No "generally available" carve out was discussed, although other exemptions were noted (pages 21 and 22).
102 The Commonwealth government determined to generally act on the Committee's recommendation and introduced the Corporate Law Reform Bill (No 2) 1992 to give effect thereto. After public comment, the 1992 Bill was withdrawn and the Corporate Law Reform Bill 1993 was introduced. The explanatory memorandum to the 1993 Bill at [225] to [251] makes it plain that some of the proposed provisions (ss 1001C and 1001D) were to be based on the then recent insider trading provisions. The "generally available" provision (s 1001C and now s 676) was based upon the then s 1002B (an interpretative provision of the insider trading provisions). The "materiality" interpretative provision (s 1001D and now s 677) was based upon the then s 1002C (an interpretative provision of the insider trading provisions). Sections 1001C and 1001D were added to the Corporations Law (together with ss 1001A and 1001B) by the Corporate Law Reform Act 1994 (Cth) s 4, sch 1, item 92. For relevant purposes, the text of ss 1001C and 1001D is in a similar form as the current ss 676 and 677 respectively, with only irrelevant differences. The present ss 674 to 677 were placed into the Act by the Financial Services Reform Act 2001 (Cth) s 3, sch 2, item 24, with effect from 11 March 2002. The explanatory memorandum to the Financial Services Reform Bill 2001 (see at [18.1] to [18.16]) does not indicate that any change in operation to the previous ss 1001C and 1001D was intended. Chapter 6CA (as it now operates) however generally widened the scope of the continuous disclosure provisions, as compared with the prior provisions, by removing the elements required of intentional, reckless or negligent non-disclosure.
103 Finally, it is apparent from the explanatory memorandum to the 1993 Bill ([251]) that in s 1001D (s 677) there was to be a distinction between "securities" as used in the phrase "commonly invest in securities" and, to use the language of [251], the "securities in question" in the last part of the section. That supports the distinction that we have made earlier concerning the current s 677. It is also supported by s 1001D when first enacted, which used the language of "the first-mentioned securities" at the end thereof, thereby distinguishing such securities from the securities more generally referred to in the phrase "commonly invest in securities". That is also consistent with the textual distinction that we have made earlier concerning s 677.
104 In summary, the extrinsic material and history to the continuous disclosure provisions demonstrate the following:
(a) First, each of ss 676 and 677 was based upon the superseded ss 1001C and 1001D respectively of the Corporations Law, which were in turn based upon the prior insider trading provisions; those prior insider trading provisions are now to be found in ss 1042A, 1042C and 1042D of the Act.
(b) Secondly, in s 677, a distinction was intended to be made between the particular ED securities and the generality of the reference to "securities" in the phrase "commonly invest in securities".
(c) Thirdly, by contrast with s 676, the phrase "commonly invest in securities" in s 677 is broader than the cognate phrase in s 676.
105 But none of this specifically answers the question of what is meant by "commonly invest in securities" in s 677 and the rationale for the qualifier "of a kind whose price or value might be affected by the information" in s 676, with the absence of that qualifier in s 677. It is appropriate to descend further into history.
106 We have also had recourse to the extrinsic material to the insider trading provisions, upon which the continuous disclosure provisions were based, to see whether they would assist. The "Fair Shares for All" Report (October 1989) of the Standing Committee on Legal and Constitutional Affairs of the House of Representatives, the recommendations of which formed the genesis of the new and more specific insider trading provisions of the Corporations Legislation Amendment Bill 1991 to replace the existing legislative provisions, does not greatly assist. In terms of the concept "generally available" information, reference was made to the "reasonable investor" without further discrimination (see [4.5.1] to [4.5.9]). In terms of the question of "materiality", reference was made ([4.4.17]) to the concept that:
inside information is information which is not generally available, but, if it were, a reasonable person could expect it to have a material effect on the price or value of the securities … [in question].
107 The explanatory memorandum to the 1991 Bill elaborated on these concepts. It is apparent from the explanatory memorandum that the proposed s 1002B ("generally available") was intended to be a "reflection" of the Committee's recommendation, although the language that now appears was enacted rather than a broad "reasonable person" test in terms (see [328]). As to the proposed s 1002C (materiality), the explanatory memorandum refers to it (see [330]) without elaboration. In summary, the extrinsic material throws little light on the different forms of expression in ss 676 and 677 with which we are concerned. But it may be said that this material does not expressly indicate that any difference was intended.
108 When regard is had to the text of each provision in context and in the light of the evident statutory purposes for each provision, the following may be stated.
109 First, undoubtedly, the expression "commonly invest" in s 676 and s 677 is to be similarly construed. We will return to what that means shortly.
110 Secondly, it is apparent that in s 677, the expression "commonly invest in securities" is broader than the expression "commonly invest in securities of a kind …". So, for s 677 the class is not confined to listed securities. Moreover, it is not confined to the type of security or company involved, whether as to size or sector. Contrastingly, s 676 is narrower and looks at the type of securities in question.
111 Not only does the text support the difference, but one can appreciate the rationale. When one is talking about materiality (s 677), there is every reason to have a broader class. The potential class of investors is necessarily broader ("persons who commonly invest in securities") even if they have not invested in securities of that kind before. But s 676 has a different function. It is looking at whether information is "generally available". In that context one is looking at a more relevant but narrower class of persons who commonly invest in the kind of securities under consideration. Has that information been made known to them? If so, it is relevantly generally available. Both the text, context and evident purpose suggests a narrower class for s 676.
112 More generally, a purposive approach might suggest giving a broader reading to s 677, given its protective purpose, and a narrower reading to s 676 which in a sense is part of an "exclusion" (using that term informally).
113 Thirdly, what is meant by "commonly invest"? What work does the adverb perform? It does not appear to us to be an appropriate way to distinguish between the sophisticated and the unsophisticated investor. Further, it also does not use the division of large or small investor. Moreover, there would be problems with such a division. Would large or small be looked at in absolute terms or relative terms? And if in relative terms, relative to what?
114 A possible operation for the adverb might be to look at frequency of investment. So, the phrase is looking at persons who frequently invest, rather than those who are one off investors. But such a construction is also problematic. There is no good reason to limit s 677 in such a fashion.
115 We are of the view that the expression "persons who commonly invest in securities" is a class description. First, the plural "persons" is used in contradistinction to the singular "a reasonable person" in s 677. Secondly, to treat this as a class description avoids distinctions dealing with large or small, frequent or infrequent, sophisticated or unsophisticated individual investors. Such idiosyncratic distinctions are made irrelevant if one is looking at a class of investors. There is no reason to confine "likely to influence persons …" to the sophisticated. The unsophisticated also need protection. Likewise the small investor and likewise the infrequent investor. But not the irrational investor. Thirdly, in the context of s 676, the question is whether the information has been made known to the relevant class, albeit that the class may be narrower than for s 677. We accept that the phrase does not use the express language of "class", but in using the plural "persons", the legislature appears to be generalising to a group description.
116 The word "commonly" in s 677 has been employed to underline that the objective question of materiality posed by ss 674 and 675 by reference to the hypothetical reasonable person in turn has regard to what information would or would be likely to influence a hypothetical class of persons namely "persons who commonly invest in securities".