2009/297276 Paul Michael Pty Ltd (subject to deed of company arrangement) v Urban Traders Pty Limited & Anor
JUDGMENT
1 HIS HONOUR: This is an application by the defendants for the stay of execution of two judgments and consequential orders. The defendants also challenge the validity of a charging order purportedly made by the Registrar under s 106(1)(c) of the Civil Procedure Act 2005 (NSW) in relation to the defendants' land.
2 The defendants are the owners of land in Pittwater Road, Bayview on which they have constructed 32 residential apartments. The plaintiff was a builder engaged by the defendants. It is now subject to a deed of company arrangement. The plaintiff obtained judgments against the defendants for $380,555.40 and $1,514,981.25 pursuant to the Building and Construction Industry Security of Payment Act 1999 (NSW) ("the Security of Payment Act"). The defendants have lodged a proof of debt with the deed administrator of the plaintiff for $7,492,505.15. That proof has not been determined.
3 The defendants submit that execution of the judgments should be stayed pending determination by the deed administrator of the proof of debt and any appeal therefrom. The judgments obtained pursuant to adjudications made under the Security of Payment Act are not determinative of the parties' contractual rights and obligations. The defendants submit that when the parties' contractual rights and obligations are ultimately determined it will be found that rather than the defendants being liable to the plaintiff, it will be found that the plaintiff is liable to them for breaches of the building contract between them. Any payments to be made by the defendants pursuant to the judgments, or any amounts recovered by the plaintiff by execution of the judgments, would be interim payments only. The defendants submit that as the plaintiff is insolvent they would suffer real prejudice if execution of the judgments were not stayed as they would be unable to recover amounts paid to the plaintiff (which would be held by the deed administrator to be applied in accordance with the deed of company arrangement) if it were ultimately determined that the defendants were not truly indebted to the plaintiff, but rather the plaintiff was indebted to them. The defendants submit that if execution of the judgments were not stayed the adjudications may operate practically as a final determination of the parties' rights rather than as interim determinations.
4 The defendants submit that the legislative purpose of the Security of Payment Act is to protect builders' cash flow by providing a fast track procedure for interim determinations of builders' rights to progress payments which may provide rough and ready justice. Where the builder is insolvent and has gone into voluntary administration or liquidation, the same considerations do not apply as apply to a builder which is a going concern. In the latter case a builder who has obtained an adjudication in its favour has a real interest in enforcing the judgment so as to preserve cash flow, even though the parties' position might be later adjusted. Where the builder is no longer carrying on business, but is subject to a deed of company arrangement, the legislative purpose underlying the Security of Payment Act has a diminished operation and this should be reflected in the court's preparedness to stay execution of the judgment. In Brodin Pty Ltd v Dasein Constructions Pty Ltd [2004] NSWSC 1230, Young CJ in Eq (as his Honour then was) said that the Security of Payment Act is only intended to operate when the head contractor and subcontractor are going concerns. Where the builder no longer needs cash flow the mischief to be covered by the Act is not present (at [87]).
5 The defendants accepted that they needed to show that there was at least a serious question to be tried that on an ultimate determination of their proof of debt it would be found that the defendants were not indebted in the amounts the subject of the adjudication certificates, or that they had valid claims against the plaintiff which operate as a set-off to discharge the judgment debts. The defendants submitted that if they establish such a serious question then the balance of convenience overwhelmingly favours the stay of execution of the judgments, as the only inconvenience to the plaintiff from staying the judgments is a delay in obtaining payment, whereas if execution of the judgments is not stayed, the defendants will be irreparably prejudiced by being unable to recover moneys paid under the judgments.
Background
6 On 22 March 2007 the defendants entered into an agreement with the plaintiff for the construction of 32 residential apartments on the land for a price of $18,543,000 excluding GST. Clause 45 of the construction agreement provided:
" 45 CONSTRUCTION MILESTONES
45.1 The Contractor shall comply with the Milestone Dates set out below:
(i) Commence construction 1 March 2007
(ii) Complete bulk excavation end May 2007
(iii) Complete basement transfer slab end December 2007
(iv) Complete structure end January 2008
(v) Complete roof coverings end March 2008
(vi) Complete lock up end June 2008
(vii) Project completion 3 October 2008
45.2 If a Milestone Date is not achieved the Contractor is to provide to the Superintendent, within 7 days of the Milestone Date, a written program to be agreed with the Superintendent as to how the Contractor will achieve the next Milestone Date.
45.3 The Contractor and the Supervisor can agree to change the Milestone Dates.
45.4 If two consecutive Milestone Dates are not achieved the Contractor will have committed a substantial breach of the contract and Clause 39 shall apply. "
7 Clause 39 provided:
" 39 Default or insolvency
39.1 Preservation of other rights
If a party breaches (including repudiates) the Contract , nothing in this clause shall prejudice the right of any other party to recover damages or exercise any other right or remedy.
39.2 Contractor's default
If the Contractor commits a substantial breach of the Contract , the Principal may, by hand or by certified post, give the Contractor a written notice to show cause.
Substantial breaches include, but are not limited to:
(a) failing to:
i) provide security ;
ii) provide evidence of insurance;
iii) comply with a direction of the Superintendent pursuant to subclause 29.3; or
iv) use the materials or standards of work required by the Contract ;
b) wrongful suspension of work ;
c) substantial departure from a construction program without reasonable cause or the Superintendent's approval;
d) where there is no construction program , failing to proceed with due expedition and without delay; and
e) in respect of clause 38, knowingly providing documentary evidence containing an untrue statement.
39.3 Principal's notice to show cause
A notice under subclause 39.2 shall state:
a) that it is a notice under clause 39 of these General Conditions of Contract;
b) the alleged substantial breach;
c) that the Contractor is required to show cause in writing why the Principal should not exercise a right referred to in subclause 39.4;
d) the date and time by which the Contractor must show cause (which shall not be less than 7 clear days after the notice is received by the Contractor ); and
e) the place at which cause must be shown.
39.4 Principal's rights
If the Contractor fails to show reasonable cause by the stated date and time, the Principal may by written notice to the Contractor :
a) take out of the Contractor's hands the whole or part of the work remaining to be completed and suspend payment until it becomes due and payable pursuant to subclause 39.6; or
b) terminate the Contract.
39.5 Take out
The Principal shall complete work taken out of the Contractor's hands and may:
a) use materials, equipment and other things intended for WUC ; and
b) without payment of compensation to the Contractor :
i) take possession of, and use such of the construction plant and other things on or in the vicinity of the site as were used by the Contractor ; and
ii) contract with such of the Contractor's subcontractors and consultants,
as are reasonably required by the Principal to facilitate completion of WUC.
If the Principal takes possession of construction plant or other things, the Principal shall maintain them and, subject to subclause 39.6, on completion of the work , shall return such of them as are surplus.
The Superintendent shall keep records of the cost of completing the work.
39.6 Adjustment on completion of work taken out
When work taken out of the Contractor's hands has been completed, the Superintendent shall assess the cost thereby incurred and shall certify as moneys due and payable accordingly the difference between that cost (showing the calculations therefor) and the amount which would otherwise have been paid to the Contractor if the work had been completed by the Contractor.
If the Contractor is indebted to the Principal , the Principal may retain construction plant or other things taken under subclause 39.5 until the debt is satisfied. If after reasonable notice, the Contractor fails to pay the debt, the Principal may sell the construction plant or other things and apply the proceeds to the satisfaction of the debt and the costs of sale. Any excess shall be paid to the Contractor.
39.7 Principal's default
If the Principal commits a substantial breach of the Contract , the Contractor may, by hand or by certified post, give the Principal a written notice to show cause.
Substantial breaches include, but are not limited to:
a) failing to:
i) provide security ;
ii) produce evidence of insurance;
iii) rectify inadequate Contractor's possession of the site if that failure continues for longer than the time stated in Item 31; or
iv) make a payment due and payable pursuant to the Contract ; and
b) the Superintendent not giving a certificate of practical completion or reasons as referred to in subclause 34.6.
39.8 Contractor's notice to show cause
A notice given under subclause 39.7 shall state:
a) that it is a notice under clause 39 of these General Conditions of Contract;
b) the alleged substantial breach;
c) that the Principal is required to show cause in writing why the Contractor should not exercise a right referred to in subclause 39.9;
d) the date and time by which the Principal must show cause (which shall not be less than 7 clear days after the notice is received by the Principal ); and
e) the place at which cause must be shown.
39.9 Contractor's rights
If the Principal fails to show reasonable cause by the stated date and time, the Contractor may, by written notice to the Principal , suspend the whole or any part of the WUC.
The Contractor shall remove the suspension if the Principal remedies the breach.
The Contractor may, by written notice to the Principal , terminate the Contract , if within 28 days of the date of suspension under this subclause, the Principal fails:
a) to remedy the breach; or
b) if the breach is not capable of remedy, to make other arrangements to the reasonable satisfaction of the Contractor.
Damages suffered by the Contractor by reason of the suspension shall be assessed by the Superintendent , who shall certify them as moneys due and payable to the Contractor.
39.10 Termination
If the Contract is terminated pursuant to subclause 39.4(b) or 39.9, the parties' remedies, rights and liabilities shall be the same as they would have been under the law governing the Contract had the defaulting party repudiated the Contract and the other party elected to treat the Contract as at an end and recover damages."
8 It is common ground that on or about 6 November 2007 Mr Charles Michael of the plaintiff and the Superintendent discussed revised milestone dates. The plaintiff contended that it was delayed in carrying out the works for a number of reasons which entitled it to extensions of time including, so it contended, variations in the scope of works and delays by the defendants in provision of necessary design details. According to the Superintendent at a meeting on 6 November 2007 between Mr Michael of the plaintiff and the Superintendent new milestones were agreed on. Those dates included completion of roof covering stage 1, 30 January 2008; lock up stage 1, 30 March 2008; completion of installation of lifts stage 1, 15 June 2008; lock up stage 2, 30 August 2008. Mr Michael says that the plaintiff's agreement to the amended dates was conditional upon being provided with co-ordinated detailed drawings and all documentation required to ensure delivery of materials was not delayed. There is a dispute as to whether a letter to that effect, which Mr Michael says was sent, was in fact sent. The Superintendent denies receipt and says that agreement to the revised milestones was unconditional.
9 The defendants paid the first 17 progress claims submitted by the plaintiff. On 24 June 2008 the plaintiffs submitted progress claim number 18 for $1,172,706. The claim was a payment claim under the Security of Payment Act. The Superintendent issued a progress certificate stating that no amount was payable pursuant to progress claim 18, and stating that the plaintiff had been overpaid to that point an amount of $281,903.
10 On 4 July 2008 the plaintiff issued a Contractor's Notice to Show Cause under clause 39.7 charging that the defendants had failed to provide it with required documents and directions in a timely and efficient manner, which entitled the plaintiff to extensions of time and other remedies including delay damages under clause 34. It required the defendants to show cause why it should not exercise a right under clause 39.9 of the construction agreement to suspend work for the defendants' alleged breaches, and thereafter terminate the contract if the breaches were not remedied.
11 On 14 July 2008 the defendants served a response to the Contractor's Notice to Show Cause and served a Principal's Notice to Show Cause under clause 39.2.
12 The defendants contended that the plaintiff was in substantial breach of contract. In the Principal's Notice to Show Cause, the defendants required the plaintiff to show cause as to why the defendants should not take out of the plaintiff's hands the remaining work to be completed under the contract under clause 39.4 of the construction agreement. The Principal's Notice to Show Cause charged the plaintiff with having committed substantial breaches of the contract by, amongst other things, substantially departing from the construction program without reasonable cause and without the Superintendent's approval, failing to perform the work with due expedition and without delay, and failing to comply with two consecutive milestone dates. The notice charged that the plaintiff had failed to achieve either the original milestones set out in the contract or the first three revised milestones, and gave particulars of various alleged defects.
13 On 23 July 2008 the plaintiff responded to the Principal's Notice to Show Cause. Amongst other things the plaintiff asserted that the revised construction program attached to the Principal's notice was not the program agreed upon in November 2007. The plaintiff also set out reasons why it was unable to achieve the milestones either as contained in the original contract or as amended. These included allegedly late provision of design details.
14 The defendants served a payment schedule in response to the plaintiff's payment claim and that claim was referred to adjudication.
15 On 7 August 2008 the adjudicator, Mr I H Bailey SC, determined that the adjudicated amount payable by the defendants to the plaintiff was $357,925.59 inclusive of GST. The adjudicator rejected the plaintiff's claim for damages for delay. He said that whilst it appeared the plaintiff had probably been delayed, it was impossible on the information provided in the adjudication application to assess the period of any individual delay and consequent entitlement to damages for delay pursuant to clause 34.9. He concluded that he was unable to assess any amount for delay costs or delay damages. He allowed some variation claims but not others. The adjudicator noted that it was uncontroversial that an oral agreement had been made between the parties to adopt a different schedule of trade allowances for the calculation of progress claims and progress certificates from that contained in the contract schedule which was an annexure to the contract. He recorded that the oral agreement had been made so as to ensure that the plaintiff had adequate cash flow in the early stages of the project to permit site and administrative establishment. The revised schedule was "front loaded". The adjudicator accepted the plaintiff's contention that a revised schedule for the calculation of progress claims and progress certificates was binding and could not be departed from unilaterally by the defendants. He found that once the revised schedule was used and cash flow for the initial items provided, such an arrangement could not be terminated unilaterally.
16 On the present application the defendants did not impugn this reasoning. Counsel for the defendants placed considerable emphasis on the report of a quantity surveyor, Davis Langdon, of 29 July 2008 in support of their submission that the defendants have a strong claim to set off against the judgment debts their contractual claim the subject of their proof of debt. Davis Langdon estimated that at 29 July 2008 the percentage of works completed by the plaintiff was 37.5 per cent, representing a value of $7,050,994 before GST, which was less than the amount paid. In the second adjudication (delivered on 27 November 2009) the adjudicator, Mr T Sullivan, commented on the opinion of Davis Langdon as follows:
" On 29 July 2008 Davis Langdon, at the request of the Superintendent, expressed their opinion that works were 37.5% complete against the Contract Sum Trade breakdown. This value of this opinion is diminished for the purpose of this adjudication because the comparative assessments are measured against the amended schedule rather than against the original schedule which it appears Davis Langdon used. The opinion does not disclose whether the Contract, plans and specifications were provided to Davis Langdon but it appears that all Davis Langdon had was the Contract Sum Trade breakdown and the results of a single visit to the site. Davis Langdon qualified their report in respect of not having an on-going engagement and having a one-off site view. The opinion is also based on the assumption that the trade breakdown is an accurate reflection of the trade-based value of the works. That assumption is not necessarily correct. The schedule is the agreed schedule against which valuations of progress payments were to be made and did not necessarily reflect the value of work to be carried out by individual trades. The Contract was varied to amend the original schedule to provide for better cash flow at the beginning but the same total price. Davis Langdon did not identify the percentage complete against preliminaries or against the various trades but only expressed an opinion as to the percentage complete against the whole of the project. Given the variations which had occurred and that many millions of dollars worth of work carried out and work to be completed needed to be assessed, it is doubtful than [sic] any reliable opinion could be expressed based on only a one day site visit and a two page, albeit incorrect, schedule. I take it therefore that Davis Langdon had considerably more documents and instructions which have not been disclosed. I have not been influenced by the opinion in determining this matter. "
17 These observations have prima facie force. They were not challenged on this application.
18 Under clause 39.4 the defendants had an election between two remedies if the plaintiff failed to show reasonable cause why they should not exercise their rights under that clause. They could either take the whole or part of the work out of the plaintiff's hands and suspend payment until payment became due and payable pursuant to clause 39.6, or they could terminate the contract. The defendants took the view that they were required to obtain the written consent of the mortgagee, Australia and New Zealand Banking Group Limited ("the ANZ Bank"), before exercising rights under that clause. The defendants, the plaintiff and the ANZ Bank had entered into a deed dated 29 May 2007. Clause 5.3 of the deed provides that "the Borrower [viz the defendants] shall not be entitled to terminate or rescind the Building Contract or suspend or purport to suspend the performance of the Project or the Building Contract without the prior written consent of the Mortgagee." On 1 August 2008 the solicitors for the defendants wrote to the ANZ Bank advising that the defendants were considering taking out of the builder's hands the whole of the work remaining to be completed on the project and sought the bank's written consent on that course. That consent was given on 21 October 2008.
19 On 14 October 2008 the adjudication certificate was registered as a judgment in the District Court in the sum of $380,555.40.
20 Meanwhile, on 25 August 2008 the plaintiff gave to the defendants a notice dated 22 August 2008 under s 24(1) of the Security of Payment Act that after two business days it would suspend the carrying out of construction work on the Bayview project as it had not received payment of the adjudicated amount. By 29 August 2008, payment still had not been made, and on that day the plaintiff suspended construction work, as it was entitled to do, under s 27 of the Security of Payment Act.
21 Section 27 of the Security of Payment Act provides:
" 27 Claimant may suspend work