statutory FRAMEWORK and legal principles
23 The Examination Summonses were issued pursuant to s 81(1) of the Act which provides:
(1) Where a person (in this section called the relevant person) becomes a bankrupt, the Court or a Registrar may at any time (whether before or after the end of the bankruptcy), on the application of:
(a) a person (in this section called a creditor) who has or had a debt provable in the bankruptcy;
(b) the trustee of the relevant person's estate; or
(c) the Official Receiver;
summon the relevant person, or an examinable person in relation to the relevant person, for examination in relation to the bankruptcy.
24 The term "examinable person" is defined in s 5 of the Act to include:
examinable person, in relation to a person (in this definition called the relevant person), means:
(a) if the relevant person is a debtor and property of the debtor is known or suspected to be in the possession of a person - that person;
(b) if the relevant person has become a bankrupt and any of the property of the bankrupt is known or suspected to be in the possession of a person - that person;
(c) in any case - a person who is believed to be indebted to the relevant person;
(d) if a person, including:
(i) a person who is an associated entity of the relevant person; or
(ii) a person with whom an associated entity of the relevant person is or has been associated;
may be able to give information about the relevant person or any of the relevant person's examinable affairs - that person; or
…
25 It was not in dispute that Mr and Mrs Hanna are respectively a "relevant person" and an "examinable person" for the purposes of s 81 of the Act.
26 Rules 6.06 and 6.12 of the Rules respectively concern the application for a summons for examination of a relevant person and the application for a summons for examination of an examinable person under s 81 of the Act. Both rules provide that the application under s 81 of the Act must be in accordance with Form B10: r 6.06(1) and r 6.12(1). Rule 6.06 then provides that:
(2) The application must be accompanied by:
(a) a draft of the summons applied for; and
(b) an affidavit that complies with subrule (3).
(3) The affidavit must:
(a) state whether the applicant is:
(i) a creditor who has a debt provable in the bankruptcy; or
(ii) the trustee of the relevant person's estate; or
(iii) the Official Receiver; and
(b) if the summons is to require the relevant person to produce books at the examination:
(i) identify the books that are to be produced; and
(ii) give details of any inquiry by the applicant about the books to be produced and any refusal by the relevant person to cooperate with the inquiry.
27 Rules 6.12(2) and (3) are substantially in the same terms as rr 6.06(2) and (3) save that r 6.12(3) requires that the affidavit relied on by the applicant in support of the summons must additionally state the facts relied on to establish that the person to be summoned is an examinable person: see r 6.12(3)(b).
28 There was no dispute between the parties about the applicable principles. The parties relied on a number of authorities which considered the duty of disclosure on an application for the issue of summonses for examination pursuant to the Corporations Act 2001 (Cth) (Corporations Act) and its predecessor the Corporations Law. The principles established in those cases apply to the similar regime for the issue of summonses for examination and production of books in the Act.
29 Re Southern Equities Corporation Ltd (in liq); Bond v England (1997) 25 ACSR 394 (Southern Equities) concerned, among other things, an appeal from a decision of a single judge who had dismissed an appeal from a decision of a Master of the Supreme Court of South Australia refusing to set aside a summons for examination under s 596B of the Corporations Law. Relevantly, the appellant argued that the respondent, who was the liquidator of Southern Equities Corp Ltd (in liq), had failed to make full and frank disclosure in his application for issue of the relevant summonses. In relation to that issue Lander J (with whom Cox and Bleby JJ agreed) said at 422:
An application for an examination summons is made ex parte. Consequently there is a heavy obligation upon the person applying for the examination summons to make full and frank disclosure of all matters which may impact upon the decision to summon a person for examination about a corporations examinable affairs.
There can be no doubt, in my opinion, that a person who makes an application of this kind is under an obligation to bring all facts and material to the court's attention which might bear upon the order to be made. The applicant has no lesser obligation than that imposed upon a party seeking an injunction ex parte. Indeed, in my opinion, the obligation for frankness and candour is even greater in an application of this kind. That is because, unlike on the return of an interlocutory injunction obtained ex parte, on the return of an examination summons the material supporting the application is not ordinarily made available to the proposed examinee.
Because the proposed examinee, ordinarily, is not privy to the information or material which was used to support the application for the examination summons, the person applying for the examination summons has the very highest obligation relating to frankness and candour and any breach of that obligation, in my opinion, ought to be viewed very seriously by the court.
The obligation is to provide to the court all material which might impact upon the order sought, including all material which might lead the court to refuse the application. The applicant must act in the place of the proposed examinee and therefore draw to the attention of the court anything which might lead the court to refuse the application.
If an applicant fails to provide all of the information bearing upon the order sought, in my opinion, that might be sufficient ground to set aside the order, because the order will have been obtained in circumstances where the court has not been apprised of a reason or reasons for the refusal of the order.
…
30 Justice Lander did not accept a submission that where a material non-disclosure has been established the order must necessarily be set aside: at 423. At 424 his Honour said:
It cannot be said that an order obtained in circumstances where there has been a failure to disclose material facts must necessarily be set aside. Whether or not the order ought to be set aside for failing to disclose material facts will depend upon the facts not disclosed and the circumstances in which the non disclosure came about. An error of judgment in failing to disclose a fact which later becomes material may not necessarily lead to the setting aside of the order previously obtained. So also an innocent non-disclosure may not necessarily require the setting aside of the order for the examination.
On every occasion where there has been a non-disclosure and an order obtained it will be a matter of inquiry as to whether or not that non disclosure should lead to the setting aside of the order.
31 In Re Shepard (in his capacity as administrator of Hunter Bulk Materials Pty Ltd) (subject to a deed of company arrangement) (2011) 83 ACSR 436; [2011] NSWSC 467 Ward J (as her Honour then was) considered an application to set aside an order for production of documents and examination summonses issued pursuant to s 596B of the Corporations Act. In doing so Ward J considered the issue of non-disclosure. After referring to the decision in Southern Equities, at [53]-[55] her Honour said:
53 In Walter Rau Neusser Oel Und Fett AG v Cross Pacific Trading Ltd [2005] FCA 955, Allsop J, as his Honour then was, adopted the relevant principles of ex parte disclosure as those discussed by Isaacs J in Thomas A Edison Ltd v Bullock (1912) 15 CLR 679 at [681]-[682] and by Mahoney AP in Gerrard (t/as Arthur Anderson & Co) v Email Furniture Pty Ltd (1993) 32 NSWLR 662 at 676-77 (and in the cases there referred to by his Honour) and emphasised the high standard of candour and the heavy responsibility on those who seek ex parte orders, especially where a discretion is involved. His Honour said that:
In an ex parte hearing, it is the obligation of the party seeking orders, through its representatives, to take the place of the absent party to the extent of bringing forward all the material facts which that party would have brought forward in defence of the application:
… squarely putting the other side's case, if there is one, by coherently expressing the known facts in a way such that the court can understand, in the urgent context in which the application is brought forward, what might be said against the making of the orders.
54 In Town & Country Sport Resorts (Holdings) Pty Ltd v Partnership Pacific Ltd (1988) 20 FCR 540 at 543; 97 ALR 315 at 317, the rationale behind this principle was noted, namely that it is of the utmost importance in the due administration of law that the courts and the public are able to have confidence that an ex parte order has been made only after the party obtaining it has complied with its duty to disclose all relevant facts.
55 Mr Hicks further observed that the duty of disclosure in general terms was such that even if something had been forgotten (such as, perhaps here, the compliance with an earlier order for production) a failure to disclose it may be sufficient to lead to the order being set aside: see Clifton v Robinson (1853) 16 Beav 355; 51 ER 816.
(emphasis in original.)
32 While acknowledging that there was a heavy duty on an applicant seeking ex parte orders, Ward J concluded, having reviewed the confidential affidavits relied on by the administrators, that she "was not satisfied that there was any material non-disclosure": at [56].