Mr Reaper's claim for an inquiry
58 It is convenient for the Court first to address Mr Reaper's application for an inquiry into the Trustee's conduct. Sections 178 and 179 of the Bankruptcy Act as it applied at the relevant time are in the following terms:
178 Appeal to Court against trustee's decision etc.
(1) If the bankrupt, a creditor or any other person is affected by an act, omission or decision of the trustee, he or she may apply to the Court, and the Court may make such order in the matter as it thinks just and equitable.
(2) The application must be made not later than 60 days after the day on which the person became aware of the trustee's act, omission or decision.
179 Control of trustees by the Court
(1) The Court may, on the application of the Inspector-General, a creditor or the bankrupt, inquire into the conduct of a trustee in relation to a bankruptcy and may do one or both of the following:
(a) remove the trustee from office; and
(b) make such order as it thinks proper.
(2) The Inspector-General or a creditor may at any time require a trustee to answer an inquiry in relation to the bankrupt's estate or affairs.
59 Those sections were repealed by the Insolvency Law Reform Act 2016 (Cth) (the Reform Act) as of 1 March 2017: see Sch 1, Pt 2, Item 54. However the Reform Act provides that proceedings initiated prior to its commencement continue to be governed by the Bankruptcy Act as it was prior to the Reform Act: see Sch 1, Pt 3, Items 101 and 164. The commencement of the relevant amendments in the Reform Act were delayed until 1 September 2017 by reg 5(2)(p) of the Insolvency Law Reform (Transitional Provisions) Regulations 2016 (Cth). Mr Reaper's application was lodged for filing on 5 March 2017. It is common ground that in consequence, ss 178 and 179 (although repealed) continue to apply in their former terms to the present proceeding.
60 Section 178 of the Bankruptcy Act had been held to confer "a supervisory jurisdiction over the conduct of a trustee and is a very wide discretion": Moss v Gunns Finance Pty Ltd (Receivers & Managers Appointed) (In liquidation) [2018] FCAFC 185; 16 ABC(NS) 325 (Moss) per Gleeson, Lee and Banks-Smith JJ at [15] citing Cummings v Claremont Petroleum NL [1996] HCA 19; 185 CLR 124 at 132 per Brennan CJ, Gaudron and McHugh JJ and McGoldrick v Official Trustee in Bankruptcy [1993] FCA 961; 47 FCR 547 per Northrop, Ryan and O'Loughlin JJ at 552-553.
61 Section 178 "allows the Court to make such orders as seems appropriate in the circumstances of the case": Moss at [15] citing Re Tyndall; Ex parte Official Receiver [1977] FCA 72; 30 FLR 6 at 9-10 per Deane J.
62 It is not necessary that an applicant for relief pursuant to s 178 shows that a trustee's act, omission or decision was absurd, unreasonable or taken in bad faith, however the cases establish that the Court will be reluctant to interfere with the day-to-day administration of a bankrupt's estate, or intervene simply because it forms a different view from that of the trustee: Frost v Sheahan (Trustee) [2009] FCAFC 20; 6 ABC(NS) 786 at [8].
63 With respect to s 179 of the Bankruptcy Act, the relevant principles were summarised by French J (as he then was) in Macchia v Nilant [2001] FCA 7; 110 FCR 101 (Macchia) at [49]-[50]:
49 As appears from the language of s 179 it invites first a consideration, albeit upon application by a person with standing, of whether the Court should inquire into the conduct of the trustee. If inquiry is undertaken, the next question is whether the trustee should be removed from office and/or any other order made. The first question requires the Court to consider whether, on the grounds and facts before it, a case has been made for an inquiry - Re Alafaci [Registrar in Bankruptcy v Hardwick (1976) 9 ALR 262] at 268. The application of s 179 to that first step involves a broad discretion as to whether or not there are sufficient grounds to make an inquiry appropriate - Turner v Official Trustee in Bankruptcy (Full Court, 27 November 1998, unreported). The Full Court there quoted with approval the observation of Ellicott J in Re Gault that:
"…the court should be loath to order an inquiry unless it considers that on the evidence before it there are substantial grounds for believing that the trustee erred in his administration. If the court considers that an inquiry is unlikely to reveal misconduct it should not make an order and put the respondent and possibly the creditors to the expense and trouble involved." (173)
The policy consideration referred to by Deane J in Re: Tyndall that "the court should not unduly interfere with the day-to-day administration of a bankrupt's estate by a trustee" applies also to the operation of s 179 - Turner at pp 2-3.
50 Section 179 operates in aid of the Court's supervision of trustees who are its officers. That operation, however, is subject to restraint against undue interference and to discretionary considerations including the practical benefit likely to be derived from the conduct of any inquiry. Like s 178, it may be invoked by a bankrupt after discharge and in part for the same reason, namely that the trustee's powers continue in the various ways referred to in Cheesman. It may also be the case that the trustee should be held to account for conduct in the administration of the estate which has affected the bankrupt in some way. As is the case with s 178, it is not a vehicle for pressing claims for common law damages under the general law. That is a matter for a court of appropriate jurisdiction. In addition the court will also have in such cases the discretion to determine the utility of an inquiry and its likely outcomes. For "although the court is given a broad discretion under s 179 of the Act, that discretion must be exercised in the interests of the orderly administration of the bankrupt's estate" - Re Challen (A Bankrupt); Ex parte Brown (Beaumont J, 23 April 1996, unreported) cited with approval by Merkel J in Cheesman at first instance, p 114.
64 The reasoning of French J in Macchia is also authority for the proposition that s 179 may be relied upon by a discharged bankrupt even after the conclusion of his or her bankruptcy: see at [51] and Ferella v Official Trustee in Bankruptcy [2010] FCA 766; 188 FCR 68. I proceed on that basis.
65 Section 19 of the Bankruptcy Act sets out the duties of a trustee:
(1) The duties of the trustee of the estate of a bankrupt include the following:
(a) notifying the bankrupt's creditors of the bankruptcy;
(b) determining whether the estate includes property that can be realised to pay a dividend to creditors;
(c) reporting to creditors within 3 months of the date of the bankruptcy on the likelihood of creditors receiving a dividend before the end of the bankruptcy;
(e) determining whether the bankrupt has made a transfer of property that is void against the trustee;
(f) taking appropriate steps to recover property for the benefit of the estate;
(g) taking whatever action is practicable to try to ensure that the bankrupt discharges all of the bankrupt's duties under this Act;
(h) considering whether the bankrupt has committed an offence against this Act;
(i) referring to the Inspector-General or to relevant law enforcement authorities any evidence of an offence by the bankrupt against this Act;
(j) administering the estate as efficiently as possible by avoiding unnecessary expense;
(k) exercising powers and performing functions in a commercially sound way;
(l) the duties imposed on the trustee under Schedule 2.
(2) Where a person who became a bankrupt on a creditor's petition is unable to prepare a proper statement of affairs, the trustee may employ, at the expense of the estate, a qualified person to assist in the preparation of the statement.
66 Having regard to those duties and the history of this matter as recounted above, I am unpersuaded that there is any sufficient reason for the Court to order an inquiry into the conduct of the Trustee pursuant to s 179 of the Bankruptcy Act or for it to make any order pursuant to s178. I find that the evidence in these proceedings does not reach the threshold required for the Court to take either of those steps. My reasons are as follows.
67 First, I find it to be established beyond dispute that in all of the extensive litigation earlier instigated by Mr Reaper, the Trustee's position has been vindicated by judicial determinations of this Court and the FCCA.
68 Second, I am unpersuaded that Mr Reaper's claims with respect to the asserted invalidity of the Warrant are of substance. While pleaded, Mr Reaper directed no submissions to support his contention that the Warrant was not issued lawfully. In any event I reject that it is so.
69 As noted above, Mr Reaper applied to stay or restrain the Trustee from enforcing the orders of Judge Burchardt that required Mr Reaper to provide vacant possession of the Property (on which the Warrant was based). That application was dismissed, and Mr Reaper unsuccessfully sought leave to appeal. After the Trustee had obtained orders for the Warrant to issue, Mr Reaper applied to the FCCA for a stay of its execution. That application was dismissed. In delivering ex tempore reasons on 9 December 2016, Judge Wilson noted that counsel for the Trustee had informed the Court that execution of the Warrant was imminent.
70 Mr Reaper did not draw this Court's attention to any section of the Federal Circuit Court of Australia Act 1999 (Cth) (the FCCA Act) or any rule of the FCCA Rules that might justify a conclusion that the form of the Warrant was other than regular. The Warrant was signed, dated and stamped pursuant to s 48 of the FCCA Act. There is no facial deficiency in the Warrant. It may be accepted that it was issued by a Registrar and not a judge of that Court but Registrars have delegated power to issue enforcement warrants under Subdiv 25B.2.3 of the FCCA Rules: see s 102 of the FCCA Act and r 20.00A(1), Item 31 of the FCCA Rules. There is nothing in those Rules as would prevent a Registrar issuing a warrant in relation to a matter while it is in the docket of a judge if that that order is consistent with and implements the orders made by the judge. In Mr Reaper's instance I am satisfied that was the case.
71 The Warrant was issued on 23 September 2016 out of the FCCA. A copy of the Warrant as it was issued is annexed to the affidavit of Petr Vrsecky of 22 November 2017 (annexure PV-8). The Warrant was addressed to "the Sheriff" in the following terms:
In respect of orders made by his Honour Judge Burchardt on 18 September 2015 and Further Amended pursuant to Rule 16.05(2)(e) of the Federal Circuit Court Rules 2001 on 9 October 2015 and varied on appeal by the Honourable Justice Davies in the Federal Court of Australia on 12 May 2016 it was adjudged that Petr Vrsecky as trustee of the bankrupt estate of Brett Vincent Reaper, recover vacant possession of the land and buildings described in the Schedule hereto.
Enter the land and buildings and cause the Applicant [being Petr Vrsecky as the Trustee] to have possession of it and indorse on this warrant immediately after you have performed all your obligations under it a statement of the date, time and place at which you have executed or attempted to execute the warrant and the results of the execution and send a copy of the statement to the [Trustee], care of [his] solicitors.
72 The schedule identified the land and buildings the subject of the Warrant, being the Property.
73 I am thus satisfied the Warrant was both lawfully issued and valid.
74 Third, contrary to Mr Reaper's allegations, I am satisfied that the Warrant was lawfully executed. Section 106 of the FCCA Act sets out the responsibilities of the Sheriff of the FCCA. Section 108 of that Act provides that the Sheriff "may authorise persons to assist him or her in the exercise of any of his or her powers or the performance of any of his or her functions". The Court may draw inferences of fact and, given the undisputed evidence in respect of its execution and the presumption of regularity, I infer that the SOV was so authorised.
75 Mr Reaper seeks to rely on the absence of any indorsement by the Sheriff regarding its execution appearing on the copy of the Warrant exhibited by the Trustee. Mr Vrsecky gave evidence in cross-examination that he thought he had been provided with an indorsed copy of the Warrant and that it would be in his records. It is unnecessary to determine whether or not that is so. The absence of a later indorsement does not establish that the Trustee did not lawfully take possession of the Property; indorsement, while the duty of the Sheriff, is not a prerequisite for the effective transfer of possession to the Trustee: see Szepesvary v Weston (Trustee), in the matter of Szepesvary (Bankrupt) [2017] FCA 344 (Szepesvary) per Moshinsky J at [33].
76 Mr Reaper further submits that the Warrant was not served on him or Ms Fisher or left at the place of enforcement (being the Property) pursuant to r 25B.24 of the FCCA Rules, which is in the following terms:
Enforcement officer's responsibilities
(1) An enforcement officer must:
(a) …
(b) on enforcing the Warrant:
(i) serve a copy of the Warrant on the payer; or
(ii) leave the Warrant at the place where it was enforced; and
(c) give the payer an inventory of any property seized under the Warrant; …
(Emphasis added.)
77 I doubt (although it is not necessary to decide) that r 25B.24(1)(b) which refers to a "payer" has any application to a Warrant merely commanding the Sheriff to enter and convey possession of land and real property to a person to whom a court has ordered vacant possession of it.
78 Even assuming the contrary, the rule refers to the responsibilities of the "enforcement officer" "on enforcing the Warrant"; the duty is thus that of the Sheriff and those the Sheriff has authorised to assist him or her. It is a duty of the Sheriff which arises in consequence of the action authorised by the Warrant, having been taken. Rule 25B.24 in terms does not impose any obligation on the Trustee. I am satisfied that the reasoning of Moshinsky J in Szepesvary at [33] would apply equally in those circumstances. I would so hold.
79 The resolution of those legal questions is, however, strictly unnecessary. In the factual circumstances of the present case there was no requirement for the Sheriff or those authorised by him to provide Mr Reaper with an inventory of the "property seized under the Warrant". That is because none was so seized. All that occurred on 14 December 2016 was that the SOV, acting under the authority of the Sheriff, entered the Property as directed by the Warrant and gave the Trustee vacant possession of it. There was no seizure of Mr Reaper's Property. Mr Reaper's interest in the Property was already vested in the Trustee by operation of the Bankruptcy Act and judicial orders.
80 Fourth, Mr Vrsecky's plan to prevent Mr Reaper and Ms Fisher from re-entering the Property after the execution of the Warrant involved no error of law or misconduct on his part.
81 I accept the Trustee's explanation that, having regard to the history of his relationship with Mr Reaper, and his previous unhappy experience in an earlier matter when he had permitted re-entry, that he made a decision not to allow Mr Reaper to re-enter the Property for a legitimate reason: his concern that Mr Reaper might abuse any opportunity so as to require the Trustee to take further steps to remove Mr Reaper.
82 Mr Reaper did not dispute that his dealings with the Trustee had been highly adversarial. Mr Reaper acknowledged that he had provided some assistance (copies of his pleadings) to the person whose conduct had previously caused the Trustee such a problem. It is unnecessary for me to find that Mr Reaper would himself have acted as the Trustee feared he might. It is sufficient that I conclude that in the circumstances applying, it cannot be said to have been unreasonable for the Trustee to have proceeded on a "once bitten, twice shy" basis. The Trustee's intention to prevent such a possibility arising is not a basis for the Court to conclude that the Trustee erred in his administration of Mr Reaper's bankrupt estate. The Trustee's declining to permit Mr Reaper to re-enter the Property involved no error of law or misconduct on his part.
83 Fifth, there was nothing improper or unlawful in the Trustee having moved to secure possession of the Property as soon as that became possible, notwithstanding that that action had been pursued close to Christmas. The timing was not of the Trustee's choosing.
84 Mr Reaper and Ms Fisher had had ample prior notice of their obligation to vacate the Property. Mr Reaper did not dispute that orders had been made by a judge of this Court that had required him and Ms Fisher (Ms Fisher not having exercised her right to purchase the Trustee's interest in the Property) to give vacant possession of the Property to the Trustee no later than 9 September 2016: see [21] above. It had been their continuing disregard of those orders that had compelled the Trustee to seek the issue of the Warrant. Even assuming that the Trustee could have requested that the SOV delay executing the Warrant in the circumstances applying, I reject that he had a duty to do so.
85 Sixth, as Mr Reaper conceded, once the former occupants' possessions had been removed, there was nothing in evidence as would have put the Trustee on notice that he should fund the presence of security guards at the Property on an ongoing basis to protect it until it had been sold. That concession was appropriate. Although it was an empty house, there is nothing to suggest it was particularly vulnerable to unauthorised access.
86 Seventh, although Mr Reaper put to Mr Pearson (who I accept was then acting as the Trustee's agent) that he had left the Property unlocked on the evening of 20 December 2016 after AA had removed Mr Reaper's and Ms Fisher's possessions, I am not persuaded that I should make such a finding.
87 Mr Reaper gave evidence that some two weeks later he gained access through an unlocked laundry door. Mr Reaper's case is that the house had been damaged by reason of it not having been properly secured, that that had allowed weather ingress, and that the Trustee had had a duty of reinstatement, which he had failed to discharge. However, amongst the damage Mr Reaper alleges that the Trustee had failed to reinstate is the damaged door through which Mr Reaper had entered. Whatever doubts I later express regarding the reliance I am entitled to place on other aspects of Mr Pearson's evidence, that is more consistent with the door having been locked when Mr Pearson left but later forced open by an unauthorised entrant than Mr Pearson having left the door unlocked such that the Property was open to the weather.
88 Eighth, there is no evidence to suggest that the Trustee's alleged failure to reinstate caused loss to Mr Reaper by reducing the value of his residual interest in the Property. Indeed, I am not satisfied that there was any such failure. Mr Reaper adduced no evidence as to the condition of the Property when it was put on the market. Even assuming I should accept Mr Reaper's evidence as to the extent of the damage and that I am entitled to infer that that damage was not reinstated (which in the absence of any evidence I reject as a finding open to me), it is not self-evident that the Trustee would have breached his duty by not incurring the expense of reinstatement. Mr Reaper has adduced no evidence that an increased price for the Property would have exceeded the cost of the work involved in reinstating the Property before it was sold.
89 In that regard, Mr Vrsecky gave evidence that the price he secured for the sale of the Property was substantially above its reserve. His evidence was that he had secured the best possible sale price. Whilst I admitted the latter evidence only as a statement of the Trustee's belief, Mr Reaper adduced no evidence, expert or otherwise, to suggest the contrary.
90 Having regard to the eight factors I have set out above, I decline to order an inquiry into the conduct of the Trustee pursuant to s 179 of the Bankruptcy Act. I am not satisfied that there are grounds (let alone substantial grounds) for believing that the Trustee misconducted himself so as to warrant such an inquiry. For the same reasons, I will not make an order pursuant to s 178 of the Bankruptcy Act.
91 Mr Reaper's common law claims in respect of his personal possessions can and should be dealt with as a discrete matter. Determination of those claims does not require an inquiry to be ordered into the Trustee's administration of his estate.
92 I therefore turn to whether Mr Reaper has established an entitlement to judgment in his favour with respect to his common law claim.