ENTRY INTO AND PERFORMANCE OF THE DEED OF SETTLEMENT
30 In his capacity as trustee, Mr Mansfield seeks an order under s 30(1) of the Bankruptcy Act 1966 (Cth) and s 90-15(1) of the Insolvency Practice Schedule (Bankruptcy) (being Sch 2 of the Bankruptcy Act) (IPS (Bankruptcy)) that Mr Mansfield as trustee of the bankrupt estate is justified in entering into the Deed of Settlement and Release and performing his obligations under that Deed.
31 Under s 90-15 of the IPS (Bankruptcy): The Court has the power to "make such orders as it thinks fit in relation to the administration of a regulated debtor's estate": s 90-15(1). The Court may exercise this power on its own initiative or on an application under s 90-20, including by a person with a "financial interest" in the administration of the regulated debtor's estate: ss 90-15(2), 90-20(1)(a). The trustee of a bankrupt estate is a person with a "financial interest" of this nature: ss 5-15(a), 5-30(a)(iii). The types of order the Court may make include "an order determining any question arising in the administration of the estate": s 90-15(3)(a).
32 Section 30 of the Bankruptcy Act also confers a wide power on the Court. Section 30(1) provides as follows:
The Court:
(a) has full power to decide all questions, whether of law or of fact, in any case of bankruptcy or any matter under Part IX, X or XI coming within the cognizance of the Court; and
(b) may make such orders (including declaratory orders and orders granting injunctions or other equitable remedies) as the Court considers necessary for the purposes of carrying out or giving effect to this Act in any such case or matter.
33 In his capacity as liquidator, Mr Mansfield seeks the same advice under s 90-15(1) of the Insolvency Practice Schedule (Corporations) (being Sch 2 of the Corporations Act) (IPS (Corporations)). Section 90-15 of the IPS (Corporations) follows a similar format to the same numbered provision of the IPS (Bankruptcy).
34 Under s 90-15(1) of the IPS (Corporations): The Court has power to "make such orders as it thinks fit in relation to the external administration of the company". Those orders may include "an order determining any question arising in the external administration of the company": s 90-15(3)(a). A company is taken to be under external administration if a liquidator has been appointed in relation to it: s 5-15(c). The Court may exercise its power under s 90-15(1) on its own initiative or on an application under s 90-20: s 90-15(2). A person who has a "financial interest" in the external administration may make an application and a liquidator has such an interest by reason of the fact that a liquidator is an "external administrator": s 90-20(1)(a), s 5-30 and s 5-20(c).
35 The power conferred under s 90-15 of both the IPS (Bankruptcy) and the IPS (Corporations) is discretionary. In Pirina, in the matter of Fund Options (Australia) Pty Ltd (in liquidation) [2020] FCA 1256 at [41]-[42], I considered authorities relevant (in the context of a liquidation) to the principles to be applied by the Court in the exercise of that discretion on an application of this kind.
41 The principles applied in determining applications for directions under the now repealed ss 497(3) and 511 of the Corporations Act are a useful guide on applications of the kind made by Mr Iannuzzi and now sought by the liquidators, albeit that s 90-15(1) is more broadly expressed than the former s 511 of the Corporations Act. The Court will generally make orders where it is just to do so and there is sufficient utility to the external administration: see GDK Projects Pty Ltd, in the matter of Umberto Pty Ltd (in liq) v Umberto Pty Ltd (in liq) [2018] FCA 541 at [33] (Farrell J) (GDK Projects Pty Ltd); Walley, in the matter of Poles & Underground Pty Ltd (Administrators Appointed) [2017] FCA 486 at [32]-[41] (Gleeson J).
42 The following principles enunciated by Brereton J in Re One.Tel Limited [2014] NSWSC 457 at [32]-[35] and [55] have been widely applied in guiding the determination of applications for directions in the nature of judicial advice:
32 … The jurisdiction is analogous to the judicial advice jurisdiction under (NSW) Trustee Act, s 63. The effect of a direction under s 511 is to sanction a course of conduct on the part of the liquidator so that he or she may adopt that course free from the risk of personal liability for breach of duty [Purchas, [36]; Re Timbercorp Limited (in liq) [2011] VSC 189, [3]; Re S&D, [88]].
33 While the ability of a liquidator to approach the Court for directions is intended to facilitate the liquidator's functions and should be interpreted widely to give effect to that intention [Re One-Tel Networks Holdings Pty Ltd [2001] NSWSC 1065; (2001) 40 ACSR 83], it is insufficient to justify giving such directions that the liquidator wants reassurance about a commercial decision; some such issue as a question of law or procedure, of power, propriety or reasonableness, is required to justify approaching the court for directions, as was explained by Goldberg J (in the context of a voluntary administrator's application for directions under s 447D) in Re Ansett Australia Limited and Korda [2002] FCA 90; (2002) 115 FCR 409; 40 ACSR 433 , [65]:
The prevailing principle adopted by the courts, when asked by liquidators and administrators to give directions, is to refrain from doing so where the direction sought relates to the making and implementation of a business or commercial decision, either committed specifically to the liquidator or administrator or well within his or her discretion, in circumstances where there is no particular legal issue raised for consideration or attack on the propriety or reasonableness of the decision in respect of which the directions are sought. There must be something more than the making of a business or commercial decision before a court will give directions in relation to, or approving of, the decision. It may be a legal issue of substance or procedure, it may be an issue of power, propriety or reasonableness, but some issue of this nature is required to be raised. It is insufficient to attract an order giving directions that the liquidator or administrator has a feeling of apprehension or unease about the business decision made and wants reassurance.
34. In Sanderson v Classic Car Insurances Pty Limited (1985) 10 ACLR 115, Young J said (at 117) that the cases in which directions might properly be given fell into four categories, namely guidance on matters of law, guidance on questions of legal procedure, whether a liquidator should postpone a sale in order to achieve a better price, and where there are two competing offers for assets and a liquidator wishes to gain court directions in order to avoid a subsequent allegation that he or she has acted improperly in choosing one over the other. However, these categories are not exhaustive, and as Giles J said in Re Spedley Securities (at 85), immediately after noting that a Court will not make a liquidator's commercial decision for him, "It is nonetheless common for a liquidator to seek directions as to whether he is justified in entering into a particular compromise".
35. Thus, while the Court will not generally give a direction where the matter relates to the making or implementation of a business or commercial decision, or where no legal issue is raised and there is no attack on the propriety or reasonableness of the liquidator's decision, it may do so in the context of a proposed compromise [Re Spedley Securities, 85], and/or where the decision is likely to be contentious [Re Ansett, [65]; 7 Steel Distribution, [20]; Re S&D, [58]-[59]]. But the fact that a direction under s 511 - unlike an approval under s 477(2A) or (2B) - exonerates the liquidator from personal liability, means that a closer examination of the liquidator's decision is required than under s 477. In short, the court should not make a direction the effect of which is to exonerate the liquidator from personal liability in respect of a commercial judgment that the liquidator is concerned may prove contentious, unless satisfied that the liquidator's decision is, in all the circumstances, a proper one.
…
55. As with judicial advice to trustees, the court is usually conservative in the advice it gives to liquidators under s 479(3) and s 511, and such advice is conventionally expressed in terms that "the liquidator would be justified" in adopting a particular course of action. The jurisdiction to give such directions is concerned with affording protection to the liquidator in connection with proposed future action, not with ratifying action that the liquidator has already taken. This view of the jurisdiction is supported by the following observations of McLelland J, as he then was, in Re GB Nathan & Co Pty Ltd (1991) 5 ACSR 673 , (at 678):
… the only proper subject of a liquidator's application for directions is the manner in which the liquidator should act in carrying out his functions as such, and that the only binding effect of, or arising from, a direction given in pursuance of such an application (other than rendering the liquidator liable to appropriate sanctions if a direction in mandatory or propitiatory form is disobeyed) is that the liquidator, if he has made full and fair disclosure to the court of the material facts, will be protected from liability for any alleged breach of duty as liquidator to a creditor or contributory or to the company in respect of anything done by him in accordance with the directions.
36 Having regard to the equivalence of s 90-15 of the IPS (Corporations) and the IPS (Bankruptcy), similar principles should be applied in determining Mr Mansfield's application as trustee.
37 In his submissions, Mr Mansfield drew the Court's attention to the following matters as justifying the provision of judicial advice as sought:
(a) Mr Mansfield, in his capacities as trustee and liquidator, is a party to the Deed of Settlement and Release solely for the purpose of receiving the benefit of all provisions and releases given by G S Invest and providing releases to G S Invest in those capacities.
(b) In considering whether Mr Mansfield is justified in entering into the Deed of Settlement and Release, it is necessary to bear in mind that the bankrupt estate, the Company and Mr Mansfield in his capacities as trustee and liquidator may have a claim in relation to the transfer of the AIHE shares. Those claims might include a claim as trustee of the bankrupt estate against the Company for the transfer of the AIHE shares to G S Invest for no consideration and a claim as liquidator of the Company against G S Invest for the same reason.
(c) Inevitably, the settlement sum (subject to payment of remuneration, costs and expenses properly payable to Mr Mansfield) will flow to the bankrupt estate.
(d) The issue that arises is the manner in which the settlement funds will flow and the need to consider a possible or theoretical conflict. If Mr Mansfield as trustee were to make a claim against the Company, Mr Mansfield would be required to formulate and bring that claim and, in his capacity as liquidator, he would be required to adjudicate on and/or defend the claim. He could not do both. Relevant to this consideration is the fact that the only identified asset of the Company is the possible receipt of the settlement sum. Any claim that Mr Mansfield might have against the Company as trustee would be directly affected by the quantum of the settlement sum.
(e) The importance of a person who has been appointed by the Court as a liquidator, receiver or trustee informing the Court immediately of a possible conflict of interest and the recognition that resolution of the conflict was for the Court to determine was stressed by Rares J in Australian Executor Trustees Ltd v Provident Capital Ltd, in the matter of Provident Capital Ltd (receivers and managers appointed) (in liq) [2013] FCA 1461 at [11] and [14]; see also Advance Housing Pty Ltd (in liq) v Newcastle Classic Developments Pty Ltd - as trustee for the Albans Unit Trust (1994) 14 ACSR 230 at 233-234 (Santow J) and Walley, in the matter of Poles & Underground Pty Ltd (Administrators Appointed) [2017] FCA 486 at [43]-[47] (Gleeson J).
(f) The correct balance is struck in this case by giving directions that Mr Mansfield (in his dual capacities) is justified in entering into the Deed of Settlement and Release and performing the obligations imposed on him by the Deed given the following circumstances:
(i) In his capacity as liquidator of the Company, Mr Mansfield has determined that the settlement sum represents a reasonable and appropriate compromise of any potential claims against G S Invest in connection with the transfer of the AIHE shares;
(ii) His determination can be tested against the valuation;
(iii) The settlement sum is within the valuation range;
(iv) The performance of G S Invest's obligations under the Deed of Settlement and Release will result in the settlement sum being paid to Mr Mansfield in his capacity as liquidator of the Company;
(v) The Company did not carry on any business or incur any liabilities (save with respect to the AIHE shares);
(vi) In his capacity as trustee, Mr Mansfield is the sole shareholder of the Company; and
(vii) There can be no dispute that the bankrupt estate is entitled to the balance of the settlement sum, in the first instance in its capacity as the sole creditor of the Company and in the second instance as the sole shareholder of the Company.
38 Mr Mansfield also seeks an order under s 477(2A) of the Corporations Act in relation to compromising the claim that the Company has against G S Invest in relation to the transfer of the AIHE shares.
39 Section 477(2A) of the Corporations Act provides as follows:
(2A) Except with the approval of the Court, of the committee of inspection or of a resolution of the creditors, a liquidator of a company must not compromise a debt to the company if the amount claimed by the company is more than:
(a) if an amount greater than $20,000 is prescribed - the prescribed amount; or
(b) otherwise - $20,000.
40 In Royal v El Ali (No 4) [2017] FCA 299 at [21], Davies J said the following in relation to the exercise of this power:
The oft cited authority on the Court's power to authorise a liquidator to compromise a debt is Re Spedley Securities Ltd (in liq) (1992) 9 ACSR 83. At 85-86, Giles J stated with respect to a predecessor provision of s 477(2A):
In any application pursuant to s 377(1) the court pays regard to the commercial judgment of the liquidator (Re Chase Corporation (Australia) Equities Ltd (1990) 8 ACLC 1118. That is not to say that it rubber stamps whatever is put forward by the liquidator but, as is made clear in Re Mineral Securities Australia Ltd [1973] 2 NSWLR 207 at 231-2, the court is necessarily confined in attempting to second guess the liquidator in the exercise of his [or her] powers, and generally will not interfere unless there can be seen to be some lack of good faith, some error in law or principle, or real and substantial grounds for doubting the prudence of the liquidator's conduct. The same restraint must apply when the question is whether the liquidator should be authorised to enter into a particular transaction the benefits and burdens of which require assessment on a commercial basis. Of course, the compromise of claims will involve assessment on a legal basis, and a liquidator will be expected (as was made plain in Re Chase Corporation (Australia) Equities Ltd) to obtain advice and, as a prudent person would in the conduct of his [or her] own affairs, advice from practitioners appropriate to the nature and value of the claims. But in all but the simplest case, and demonstrably in the present case, commercial considerations play a significant part in whether a compromise will be for the benefit of creditors.
Section 477(2A) is a supervisory power of the Court in relation to the exercise by liquidators of their power to compromise debts granted by s 477(1) of the Corporations Act. The requirement imposed by s 477(2A) to obtain the Court's approval for the exercise of that power is a protective measure against error or misconduct by a liquidator: Empire (Aust) Nominees Pty Ltd v Vince [2000] VSC 324; 35 ACSR 167; cited with approval in Re HIH Casualty & General Insurance Ltd (in liq) [2002] NSWSC 1036; and Boné, in the matter of ACN 002 864 002 Pty Ltd (in liq) formerly known as Petrolink Pty Ltd v Smith [2015] FCA 870 ("Boné v Smith"). In considering whether to grant approval, the primary concern of the Court is whether the compromise is a proper exercise of power and for the benefit of the creditors within the overall context of the liquidation: Boné v Smith, at [22]; Re Hughes [2016] FCA 423 at [20]. A court will generally not interfere with a liquidator's commercial judgment to compromise a debt unless there is good reason, such as the identification of a legal issue or where the propriety or reasonableness of the liquidator's decision to compromise the debt has been called into question. As stated by Brereton J in Re One.Tel Ltd (in liq) [2014] NSWSC 457; 99 ACSR 247:
The role of the court is to grant or deny approval to the liquidator's proposal, not to reconsider every issue considered by the liquidator, nor to develop some alternative proposal which might seem preferable. In reviewing the liquidator's proposal, the court pays due regard to his or her commercial judgment and knowledge of all of the circumstances of the liquidation, but satisfies itself that there is no error of law or ground for suspecting bad faith or impropriety, and evaluates whether the proposal is consistent with the expeditious and beneficial administration of the winding up
A court should not grant its approval under s 477(2A) if a case against the exercise of the power has been sufficiently shown.
41 In support of his claim to this order, Mr Mansfield submitted that a compromise of the Company's claim against G S Invest would be a proper exercise of the liquidator's power such that an order under s 477(2A) is warranted:
(a) Since his appointment as liquidator of the Company, Mr Mansfield has investigated the Company's claim arising out of the transfer of the AIHE shares to G S Invest for no consideration, including by conducting examinations of Mr Lee-Archer, and he has negotiated a settlement with G S Invest.
(b) Mr Mansfield has joined with G S Invest in appointing a valuer for the purpose of determining an appropriate settlement sum. He has taken the further step of providing the valuation to a partner in the corporate finance department at Deloitte for the purpose of reviewing the methodologies and identifying any errors in the valuation.
(c) He has acted commercially in the resolution of the Company's claim against G S Invest and in so doing has obtained advice from practitioners appropriate to the nature and value of the claims as a prudent person would in the conduct of his own affairs as discussed in Re Spedley Securities Ltd (in liq) (1992) 9 ACSR 83 at 86.
(d) Having so acted, Mr Mansfield has formed the opinion that the settlement sum represents a reasonable and appropriate compromise of any potential claims against G S Invest in connection with the transfer of the AIHE shares because:
(i) The settlement sum is within the valuation range as at October 2016 provided for by the valuation, albeit at the lower end;
(ii) The AIHE shares are not publicly traded and there is therefore a very limited market in which those shares could be sold;
(iii) G S Invest is the most appropriate purchaser of the AIHE shares as it has held the shares since October 2016, has received the benefits associated with that shareholding and is aware of the potential value of the AIHE shares;
(iv) The valuation discloses that the market value of the AIHE shares as at 30 June 2019 was substantially below the settlement sum and in circumstances where the business of AIHE may have suffered as a consequence of COVID-19 and restrictions on international students, any sale of the AIHE shares at current market value is likely to realise an amount less than the settlement sum;
(v) If settlement is not reached with G S Invest, it will likely be necessary to commence proceedings for the recovery of the AIHE shares in circumstances where the liquidation is presently without funds and the Company has no assets that may be realised to fund litigation, the costs of the litigation are likely to be significant and there would be costs incurred to market and sell the AIHE shares to a private buyer; and
(vi) There is no evidence or indication of any error or misconduct by the liquidator which indicates that making the order sought would be appropriate.
(e) It has not been possible to obtain approval of creditors (rather than the Court) because the only creditor of the Company is the bankrupt estate and no proof of debt has been lodged because the liquidator cannot adjudicate on it, as he is the trustee of the bankrupt estate.
42 With one exception, I accept that it is appropriate to provide the judicial advice sought by Mr Mansfield as liquidator and trustee and to make orders under s 477(2A) having regard to the principles and matters set out above. That exception is giving judicial advice concerning entering into the Deed of Settlement and Release. Albeit that the operation of the Deed is subject to a condition precedent of getting "any approval or direction required" for entering into it, the fact is the trustee and liquidator have already performed that act and it appears that that condition precedent is more directed to approval under s 477(2A) than obtaining judicial advice, since such advice is not "required". The jurisdiction to give directions in the nature of judicial advice is concerned with affording protection to a liquidator or trustee in connection with proposed future action, not with ratifying action that the liquidator or trustee has already taken. In any event, it is difficult to see that the liquidator and trustee are not adequately protected by judicial advice that they would be justified in performing their obligations under the Deed.
43 I accept that there are no commercial alternatives for the reasons given by Mr Mansfield and not through any failure of diligence on his part in either of his capacities.
44 In circumstances where the Company has no assets or liabilities other than those that may arise out of claims of the bankrupt estate in relation to its participation in what appears to have been a scheme to distance assets from Mr Yang prior to his bankruptcy (based on the evidence of Mr Cruz and Mr Lee-Archer), Mr Mansfield would be justified in entering into the Deed of Settlement and Release as trustee and liquidator and obtaining the benefit of the settlement sum for which there appears to be no realistic commercial alternative.
45 It was entirely appropriate for Mr Mansfield to address the theoretical conflict between his duties as liquidator and his duties as trustee. The submissions made by Mr Mansfield reflect the tension that exists when the same individual is both trustee of a bankrupt estate of a shareholder and liquidator of the company in which the bankrupt held shares.
46 However, having regard to all of the circumstances, the conflict is only theoretical in relation to the issue of whether Mr Mansfield would be justified in entering into the Deed of Settlement and Release in either capacity. There are no creditors of the Company to be prejudiced and all of Mr Mansfield's actions in negotiating, executing and performing his obligations under the Deed of Settlement and Release result in a substantial benefit for the bankrupt estate either as a creditor or upon payment to Mr Mansfield as a shareholder upon the winding up of the Company where Mr Mansfield holds those shares as trustee for the bankrupt estate.