The s 556(1C) Issue
22Section 556(1)(h) gives priority in a winding-up to retrenchment payments over all other unsecured debts and claims with the exception of those in ss 556(1)(a)-(g). Retrenchment payments are defined in s 556(2) as "an amount payable by the company to the employee, by virtue of an industrial instrument, in respect of the termination of the employee's employment by the company, whether the amount becomes payable before, on or after the relevant date".
23"Industrial instrument" is defined in s 9 of the Act as "a contract of employment; or a law, award, determination or agreement relating to terms or conditions of employment". It is common ground between the parties that the amount payable to Mr Sturesteps pursuant to cl 17 of the agreement was a retrenchment payment.
24Section 556(1C) limits the priority given by s 556(1)(h) in respect of retrenchment payments given to excluded employees. Section 556(1C) provides as follows:
"556(1C) A payment under paragraph (1)(h) to an excluded employee of the company must not include an amount attributable to non-priority days."
25The expression "excluded employee" is defined for relevant purposes in s 556(2) in the following terms:
" excluded employee in relation to a company, means:
(a) An employee of the company who has been
(i) at any time during the period of 12 months ending on the relevant date; or
(ii) at any time since the relevant date;
or who is, a director of the company;"
26The expression "relevant date" is defined in s 9 of the Act as "the day on which the winding-up is taken because of Div 1A of Pt 5.6 to have begun". In the present case that date is the day on which the winding-up order was made - namely 27 August 2001. As Mr Sturesteps was a director within 12 months of that day he fell within the definition of excluded employee.
27The expression non-priority day relevantly is defined in s 556(2) as follows:
" non-priority day , in relation to an excluded employee of a company, means a day on which the employee was:
(a) If paragraph (a) of the definition of excluded employee applies - a director of the company;"
28Mr Sturesteps was a director of the company from 24 April 1989 to 12 September 2000. Having regard to the provisions of s 556(1C) any amount of his retrenchment payment which is attributable to those days would not be entitled to priority under s 556(1)(h).
29The primary judge held that none of the retrenchment payment was attributable to non-priority days. He concluded that the payment was attributable to the fact and date of termination which occurred after Mr Sturesteps had ceased to be a director.
30His Honour's reasoning preceded from a consideration of the judgment of the Supreme Court of Victoria in International Harvester Export Co v International Harvester Australia Ltd [1983] 1 VR 539 where Beach J held that retrenchment payments provided for by a industrial award were not payments in respect of service to the company, but rather a payment in lieu of monies the employee would have received had his employment not been terminated (at 546-547). His Honour the primary judge then considered the Explanatory Memorandum accompanying the introduction of s 441(1)(ga) of the Companies Code (the predecessor of s 556(1)(h)). That section, whilst it gave priority to retrenchment payments, excluded from the priority any payments to persons who were, or had been, within the previous 12 months, directors of the company concerned. By reference to the Explanatory Memorandum, his Honour concluded that the reason for this exclusion was to not provide directors with an incentive to allow the company to continue trading whilst insolvent, knowing their entitlements would be protected.
31His Honour then considered the recommendations in the Harmer Report ("General Insolvency Inquiry", ALRC Report No 45, 1988) and the Explanatory Memorandum to the Corporate Law Reform Act 1992 (Cth) which introduced legislation in similar form to s 556(1)(h) and s 556(1C). He referred to the fact that the Explanatory Memorandum stated that the limits applying to debts owing to "exclude (sic) employees, only apply in relation to the amount of the debt which arose during the period in which the person was an excluded employee" (judgment at [23], emphasis added by the primary judge).
32The primary judge then considered a decision of the Supreme Court of Western Australia, Rundell v Bedford (1998) 28 ACSR 66, where White J held that a termination payment was in respect of services rendered to the company. His Honour the primary judge held that this decision was contrary to what had been decided by Beach J in International Harvester, supra (at [27]). The significance of this difference as the primary judge perceived it was summarised at [29] and [30] of his judgment as follows:
"[29] The competing available views are that supported by Beach J's judgment (that they accrue only upon termination and relate to the future after termination), that supported by White J's judgment (that they effectively relate to the whole of the period of employment) or that for which the defendant here contends (that they are attributable to the day on which the agreement under which retrenchment pay becomes payable is executed).
[30] Having regard to the use in the Harmer Report and the Explanatory Memorandum of the concepts of accrual and arising and relevant to certain periods, it seems clear that Parliament was concerned fundamentally with wages and leave entitlements that accrued during the very period that the excluded employee was a director. Even if they accrued pursuant to an agreement made before the employee was a director, the intention was that they not be entitled to priority if they accrued during the time that he or she was a director. That is entirely consistent with the underlying policy of the 1985 amendments, that directors were to be disincentivised from continuing to trade an insolvent company. The underlying policy was not so much concerned with the fact that a director could influence the amounts of their entitlements, as with disincentivising insolvent trading. Once an employee ceases to be a director, there is no call for that disincentivisation, any more than there is before he or she becomes a director."
33After dealing with various authorities which considered the use of the word "attributable", his Honour then reached the following conclusions:
"[36] Each of those cases depended on the statutory context in which the term 'attributable' was used. The statutory context here is informed, in the case of ambiguity, by the extraneous material to which I have referred. That extraneous material - together with identification of the mischief intended to be remedied, both by the 1995 amendments and by the 1992 amendments - facilitates a conclusion that Parliament intended, by the concept of amounts 'attributable to' particular days, amounts that accrued on or in respect of those days.
[37] As Beach J pointed out in International Harvester , retrenchment pay does not accrue or arise over a period. It accrues or arises upon a particular event. That event is the fact which triggers the entitlement to retrenchment pay - not the original entry into the service from which the entitlement potentially arises, but may never arise if the applicable circumstances triggering the entitlement do not occur.
[38] In this case, Mr Sturesteps had no entitlement to retrenchment pay until he was actually retrenched. The 1999 Employment Agreement gave him no more than a potential entitlement to retrenchment pay, which it [sic] had not accrued before he became a director, did not accrue while he was a director, and accrued or arose only when his employment was terminated, after he ceased to be a director.
[39] The date upon which it accrued or arose - or in the language of the legislation, the date to which it [sic] was attributable - was not a non priority day. In my view, none of the clause 17.1 payment was attributable to a non priority day. It was attributable to the fact and date of his termination, which did not occur on a non priority day but occurred after he had ceased to be a director."
34With respect to the primary judge the approach to the construction which he adopted did not pay sufficient regard to the words of the statute itself or to the payment to which it had to be applied. To the extent that it was appropriate to pay regard to the earlier explanatory memoranda, the primary judge did not take account of the fact that the Second Reading Speech which accompanied the introduction of s 441(ga) of the Companies Code stated that the exclusion of the directors from priority in respect of retrenchment payments was for two reasons. The first was the reason stated by his Honour, but the second was that directors are largely able to determine their own remuneration and other entitlements. (See the passage of the Second Reading Speech referred to by the primary judge (second judgment at [19]).)
35Further, the approach of comparing the views of Beach J and White J to the particular award or agreement before them directed the attention of the primary judge away from the agreement in question in the present case. The fact that Beach J found that a provision in an award for retrenchment payments is compensation for loss of future employment as distinct from compensation for past services, does not mean that every agreement which provides for a payment on termination has that effect. Indeed, s 237(6) of the Corporations Law, as it existed at the date of the agreement expressly contemplated that lump sum payments in connection with retrenchment could be payments for past services.
36In considering the meaning of s 556(1C) the primary consideration should be the language which is used by the legislature: Commissioner of Taxation (Cth) v BHP Billiton Minerals Pty Ltd [2011] HCA 11; (2011) 277 ALR 224 at [47]; Alcan NT Alumina Pty Ltd v Commissioner of Territory Revenue [2009] HCA 41; (2009) 239 CLR 27 at [47]; Saeed v The Minister for Immigration and Citizenship [2010] HCA 23; (2010) 241 CLR 252 at [31]-[32]. In the latter case the Court emphasised that statements as to legislative intention made in explanatory memoranda or by ministers however clear and emphatic cannot overcome the need to carefully consider the words of the statute to ascertain its meaning. (See also R v Bolton; Ex parte Beane [1987] HCA 12; (1987) 162 CLR 514 at 518.)
37We were referred to a number of dictionary definitions of the word "attributable" and a number of authorities in which the meaning has been considered. The Oxford English Dictionary defines the word as meaning "capable of being attributed or ascribed esp . as owing to, produced by". The Macquarie Dictionary definition referred to by the primary judge is to similar effect.
38The authorities to which we were referred emphasised the need for a causal link or connection between the matter in question and that to which it is sought to be attributed. Thus, in Roncevich v Repatriation Commission [2005] HCA 40; (2005) 222 CLR 115, in considering whether an injury was attributable to Defence Services for the purposes of s 70(5)(a) of the Veterans Entitlements Act 1986 (Cth) the plurality made the following remarks: "A causal link alone or a causal connexion is capable of satisfying a test of attributability without any qualifications conveyed by such terms as sole, dominant, direct or proximate" (at [27]).
39In Central Asbestos Co v Dodd [1973] AC 518 the House of Lords considered the question of whether a person had knowledge of material facts which demonstrated that his asbestos related disease was attributable to the negligence of his employer for the purpose of s 7(3) of the Limitation Act 1963 (UK). In that context Lord Reid made the following comment:
"So probably the key lies in the use of the word 'attributable.' That means capable of being attributed. 'Attribute' has a number of cognate meanings; you can attribute a quality to a person or thing, you can attribute a product to a source or author, or you can attribute an effect to a cause. The essential element is connection of some kind." (at 533)
See also Walsh v Rother District Council [1978] 1 All ER 510.
40Section 556(1C) in the present case requires identification of the amount of a payment which can be attributed to non-priority days. It assumes by use of the words "must not include an amount attributable to non-priority days" that a payment can be in part attributed to priority days and in part to non-priority days. I do not think the fact that the words "so much if any" as used in s 556(1A) and s 556(1B), are not used in s 566(1C), leads to a contrary conclusion. In these circumstances, what is required in my opinion is first to ascertain the reason for which the payment is made. If the reason for the whole or part of the payment was to compensate the employee for services rendered during the period the employee was also a director, then that portion of the payment will be attributable to non-priority days. This approach is consistent with the authorities to which I have referred above and, in my opinion, gives effect to the intention manifested by the legislature that a former employee / director of a company is not totally excluded from priority in respect of a retrenchment payment, but rather is only excluded insofar as the payment relates to a period in which he or she was a director.
41In the circumstances of the present case, cl 17 of the agreement expressly provided that the payment was made in recognition of past services. This appears expressly from cl 17.3 of the agreement, and the reference in that clause to the limitations in s 237(6) of the Corporations Law further emphasises the fact that the payment is in recognition of past services rendered by Mr Sturesteps to HIH Casualty. To the extent that those past services were rendered on non-priority days, any payment attributable to service on those days would not receive priority under s 556(1)(h).
42I have already indicated why in my opinion his Honour's approach to the construction of s 556(1C) was incorrect. Whilst it is correct that the liability to make a payment under cl 17 only fell due on the event of termination, which took place on a priority day, that does not answer the question of whether the payment or some of it was attributable to non-priority days. His Honour appears to have assumed that the question posed by s 556(1C) is when the entitlement to a redundancy payment accrued arose (at [38], [39]). However, s 556(1C) is concerned with whether a retrenchment payment includes an amount attributable to non-priority days. Further, his Honour's approach ignores the fact that s 556(1C) by using the words "must not include an amount attributable to non-priority days" contemplates that part of a retrenchment payment could be attributable to non-priority days and part to priority days. His Honour's construction would lead to the result that the whole of the retrenchment payment would be attributable to either priority days if the employee was not a director at the time the liability to make the payment arose, or to non-priority days if he was a director on that day. If a director resigned from that position and the next day resigned as an employee, the whole of his retrenchment payment would be attributable to priority days. This does not seem to me to reflect the intention of the legislature.
43Mr Rayment sought to support the conclusion of the primary judge by reference to ss 556(1A) and 556(1B), which impose similar restrictions on priority payments to excluded employees in respect of wages, superannuation and leave of absence. He pointed to the fact that those subsections were in similar terms to s 556(1C) and that as payments in respect of wages, superannuation and leave of absence accrue on a regular basis, these payments would be attributable to the day they accrued. He said that, consistently with that approach, for the purpose of s 556(1C) a retrenchment payment should be attributable to the day it accrued, namely the day the liability to make the payment fell on.
44I do not think that this submission provides support for the construction favoured by the primary judge. In each case the question is: to what day is the payment to be attributed? The fact that in some cases the day of attribution will be the date of accrual does not mean that the word accrued should be substituted for the word attributable in s 556(1C).
45It follows, in my opinion, that the learned trial judge was in error in holding that the whole of the termination payment was attributable to the date that the liability to make the payment arose and, therefore, that none of it was attributable to non-priority days.
46That leaves the question of the correct method of attribution. The primary submission of HIH Casualty was that the whole of the payment should be attributed to the date the agreement was entered into. With respect this seems to me to have similar difficulties to the construction proposed by the primary judge. Such a construction ignores the reason for which the payment was agreed to be made. Further, as with the construction preferred by the primary judge, it would mean that there would never be an opportunity to apportion the payment, as the attribution would depend solely on whether the employee was a director at the date of the agreement. Finally, it ignores the fact that the liability for the payment depended on the contingency of termination occurring.
47Each of the parties adopted fallback positions in their submissions. Each accepted that if the primary position was incorrect then the appropriate method of attribution of the second limb of the payment referred to in cl 17.1(c), namely "5/52 of your annual Remuneration Package for each completed year of service", was to apportion it between the period when Mr Sturesteps was a director and the period when he was not. As Mr Sturesteps was a director for 91.5 percent of the time in question it would follow that 8.5 percent of the termination payment was entitled to priority.
48It seems to me that this approach is correct. The amount payable under the second limb of cl 17.1(c) increased by a fixed formula for each year of service from the commencement date to the date of termination. In these circumstances it seems to me appropriate to attribute the payment equally over the whole period and then calculate the proportion of non-priority days by reference to the proportion of the period during which Mr Sturesteps was a director of HIH Casualty.
49The first limb of the payment referred to in cl 17.1(c), "your annual Remuneration Package", causes more difficulty. Counsel for Mr Sturesteps' primary submission was that it should be attributed to the day of termination and therefore, none of it was attributable to non-priority days. This suffers from the same difficulty as the construction preferred by the primary judge in relation to the whole payment. In summary, it ignores the fact that the payment was for past services.
50The fallback position adopted by Mr Sturesteps was that the payment be apportioned on the same basis as the amount due under the second limb of cl 17(1)(c).
51Senior counsel for HIH Casualty, Mr Gleeson SC, initially adopted the position that if his submission that the whole of the payment was attributable to the date of the agreement was rejected, then the whole of it should be apportioned over the period of employment. However, in the course of his argument he submitted that it would be appropriate to attribute the first limb to the period between the commencement of employment with HIH Casualty and the date of the agreement. This was because the entitlement of the payment under the first limb did not depend upon any further service.
52There is force in this argument but ultimately, in my opinion, it should be rejected. It must be remembered that at the date of the agreement, payment not only was contingent on termination but also the amount payable was dependent on the annual remuneration package to which Mr Sturesteps was entitled at the date of termination. Clause 5 of the agreement provided for an annual review of that remuneration package with the proviso that the review package would be not less than the package immediately prior to the review.
53In these circumstances it cannot be said, in my opinion, that the total payment due under the first limb was attributable only to the period prior to the agreement. The amount either would or could vary depending on the remuneration payable on the termination date. This weighs against attributing the whole of the first limb of the payment solely to the period prior to the date of entry into the agreement.
54Aligned with this, it must be remembered that the whole of the payment was for past services, that is services up to the date of termination. The first limb of the payment was not apportioned to any particular period. In these circumstances it seems to me to be more appropriate to attribute it to the whole period of service and apportion it between priority and non-priority days in the same manner as the second limb.
55It follows that 91.5 percent of the payment is attributable to non-priority days and 8.5 percent is entitled to priority.