Does the National Consumer Credit Protection Act 2009 (Cth) apply?
37The National Credit Code ("the code") is Schedule 1 to the National Consumer Credit Protection Act 2009. The cross claimant submitted that the Act and the Code apply to the provision of credit in this case. For this to be so, the requirements of section 5 must first be satisfied. The section is in the following terms:
5
(1) [Key elements] This Code applies to the provision of credit (and to the credit contract and related matters) if when the credit contract is entered into or (in the case of precontractual obligations) is proposed to be entered into:
(a) the debtor is a natural person or a strata corporation; and
(b) the credit is provided or intended to be provided wholly or predominantly:
(i) for personal, domestic or household purposes; or
(ii) to purchase, renovate or improve residential property for investment purposes; or
(iii) to refinance credit that has been provided wholly or predominantly to purchase, renovate or improve residential property for investment purposes; and
(c) a charge is or may be made for providing the credit; and
(d) the credit provider provides the credit in the course of a business of providing credit carried on in this jurisdiction or as part of or incidentally to any other business of the credit provider carried on in this jurisdiction.
38This section must be read in the context of section 13, which outlines a set of presumptions relating to the application of the code:
13
(1) [Code presumed to apply] In any proceedings (whether brought under this Code or not) in which a party claims that a credit contract, mortgage or guarantee is one to which this Code applies, it is presumed to be such unless the contrary is established.
(2) [Debtor's declaration as to purpose] It is presumed for the purposes of this Code that credit is not provided or intended to be provided under a contract wholly or predominantly for any or all of the following purposes (a Code purpose):
(a) for personal, domestic or household purposes;
(b) to purchase, renovate or improve residential property for investment purposes;
(c) to refinance credit that has been provided wholly or predominantly to purchase, renovate or improve residential property for investment purposes;
if the debtor declares, before entering the contract, that the credit is to be applied wholly or predominantly for a purpose that is not a Code purpose, unless the contrary is established.
(3) [Credit provider's knowledge as to purpose] However, the declaration is ineffective if, when the declaration was made, the credit provider or a person (the prescribed person) of a kind prescribed by the regulations:
(a) knew, or had reason to believe; or
(b) would have known, or had reason to believe, if the credit provider or prescribed person had made reasonable inquiries about the purpose for which the credit was provided, or intended to be provided, under the contract;
that the credit was in fact to be applied wholly or predominantly for a Code purpose.
(4) [Ineffective declaration] If the declaration is ineffective under subsection (3), paragraph 5(1)(b) is taken to be satisfied in relation to the contract.
(5) [Form of declaration] A declaration under this section is to be substantially in the form (if any) required by the regulations and is ineffective for the purposes of this section if it is not.
...
39The position with respect to the application of the Code is this. There is a presumption that the Code applies where that assertion is made: s13(1). The cross claim contains such an averment, and Mr. Foley maintained it in the course of argument. If this were all, the onus of rebutting the relevant statutory presumption of fact would fall on the plaintiff.
40However the presumption - and accordingly the onus of rebuttal - is reversed where a declaration is made by the debtor that the loan in question is not for a Code purpose: s13(2). Ozzy Loans tendered Exhibit 1, a document entitled Declaration of Purposes For Which Credit is Provided. The document is signed by Mr. Zhong, both in his personal capacity as guarantor and in his capacity as director of New Concept, and dated 29 November 2010. The document states that the purpose for which the credit was to be applied by Mr. Zhong was the purchase of a store, which I take to be a reference to stores or stock, which is a business (non-code) purpose.
41Once the s 13(2) presumption arises on the evidence, as in this case, it is for the party claiming the declaration is ineffective to make good their claim. That is, that party carries the legal onus of rebutting the statutory presumption. Mr. Foley sought to do this in two ways.
42First, by reference to s13(5) Mr. Foley sought to highlight two erroneous references within Exhibit 1 to former legislative instruments. Exhibit 1 purports to apply section 11 of the repealed Consumer Credit Code, and regulation 10 of the repealed Consumer Credit Regulations. The form also makes the following statement:
By signing this declaration you may lose your protection under the Consumer Credit Code [my emphasis].
43It is common ground that Exhibit 1 is in a form prescribed under the regulations to the repealed code. However for present purposes, s13(5) of the current code requires only that a declaration is substantially in the form... required by the regulations. That is a reference to the National Consumer Credit Protection Regulations 2010 (Cth), more specifically regulation 68, which sets out these requirements. Mr. Foley submitted on behalf of the defendants that the erroneous references were 'fatal' to validity of the declaration (tr 105.35). Mr. O'Brien submitted that the declaration was in substantial compliance with the requirements of the regulation. In my judgment the plaintiff's submission is correct; the declaration in Exhibit 1 - notwithstanding the misnomers described above - is in all respects substantially in the form required by the regulations, and is therefore effective for the purposes of s13(2) of the Code. The references to the former code do not alter the substance of the declaration.
44Mr. Foley also made a further submission on the basis of s13(3), to the effect that the first cross defendant knew or ought to have known that the credit was in fact to be applied wholly or predominantly for a Code purpose. In support of this submission reference was made to the fact that Mr. Giang's name appeared on the indicative letter of offer (Exhibit KS-01 p34), but was removed before being signed by Mr. Zhong. Mr. Foley submitted that this should have put the first cross defendant on notice to make reasonable inquiries, which would have revealed that the credit was in fact to be applied wholly or predominantly for a Code purpose.
45There is, with respect, very little force in this submission. Although inquiries might have been made by the first cross defendant about the reasons for the removal of any reference to Mr. Giang in the loan documentation, it is not apparent how such inquiries would have given the first cross defendant even constructive knowledge that the purpose for which the loan was really required was a Code purpose. Indeed it is difficult to see why, had enquiries of this kind been made, the person instigating any purported improper purpose would reveal that purpose. It seems to me more likely that such a purpose would have been denied in this scenario.
46Moreover, I interpolate, had the plaintiff made inquiries, and had they uncovered the information that the purpose of the loan was to enable Mr. Giang to advance in some way, not specified in the evidence before me, the Waitara project a Code purpose would not have been disclosed. The evidence about the Waitara project is at best sketchy. But it seems to have involved a large development or construction project. Even if one assumes the project was largely residential, pars.5(1)(b)(ii)-(iii) of the code are not in my judgment engaged. That matter is not covered by the concept of purchasing, renovating or improving a residential property. That concept seems to refer to an existing property. And to my mind to what might be called a "Mum and Dad" investment, not a major construction project.
47But more importantly, it apposite to refer in this context to the operation of the general law of contract, against the background of which the legislation currently in question was passed and now operates. When determining, as is required by the provisions of sections 5 and 13 of the Code, the intention for which the credit is to be provided as between the parties to the loan agreement, regard ought to be had to the objective intention of the parties. In Toll (FGCT) Pty Ltd v Alphapharm Pty Ltd & Ors (2004) 219 CLR 165 Gleeson CJ, Gummow, Hayne, Callinan and Heydon JJ said the following at 179 [40]:
This Court, in Pacific Carriers Ltd v BNP Paribas, has recently reaffirmed the principle of objectivity by which the rights and liabilities of the parties to a contract are determined. It is not the subjective beliefs or understandings of the parties about their rights and liabilities that govern their contractual relations. What matters is what each party by words and conduct would have led a reasonable person in the position of the other party to believe. References to the common intention of the parties to a contract are to be understood as referring to what a reasonable person would understand by the language in which the parties have expressed their agreement. The meaning of the terms of a contractual document is to be determined by what a reasonable person would have understood them to mean. That, normally, requires consideration not only of the text, but also of the surrounding circumstances known to the parties, and the purpose and object of the transaction
48Such considerations are in my view with respect highly persuasive in this context. To my mind a reasonable reader in the position of the parties at the time the contract was made would have concluded from the documents that the principal was not being loaned for a code purpose.
49One accepts that a claim for statutory relief may bring into play different considerations: Toll at 185 [57]. And s.13(3) makes the actual or constructive knowledge of the credit provider, here Ozzy Loans, a factor capable of rendering the declaration ineffective. To that extent, as Mr. Foley argued, the objective theory of contract is displaced and the parol evidence rule would not forbid the admission of extrinsic evidence to prove that the real purpose was a code purpose, or to establish relevant knowledge on the part of the lender: a lender may not turn a blind eye to a code purpose. But as I have said there is no satisfactory evidence capable of engaging that provision.
50Given my finding of the validity of the declaration, Exhibit 1, the presumption against the application of the Code in s13(2) applies in this case. To my mind, nothing in the evidence before me causes that presumption to be rebutted, and accordingly in my judgment the loan was not made for a code purpose pursuant to section 5. The result is that the National Consumer Credit Protection Act and the Code do not apply, and the relief sought in this part of the cross claim cannot be granted.