To Review or not to Review
34 Ligon 158 approached its present claims for relief upon the basis that it should be joined as a defendant and then it would be qualified to bring an application for review of the 27 August 2014 orders under s 35A(5) or under s 35A(6) of the FCAA. But that approach assumes in its favour that there is good reason to join it as a defendant. However, the question of whether it should be joined as a defendant raises the same or similar issues as are raised by Ligon 158's claim that the Court should act of its own motion under s 35A(6) of the FCAA to review the 27 August 2014 orders. For these reasons, I propose to consider the matter upon the basis that Ligon 158 must persuade me to act of my own motion under s 35A(6) of the FCAA or to act under r 2.13 of the Corporations Rules. I do not think that s 35A(5) has any independent role to play. That subsection would only need to be considered if I were to join Ligon 158 as a party/defendant pursuant to r 2.13(3).
35 Ligon 158 submitted that the liquidators had not informed Andrew Binetter or it of their intention to apply to wind up BCI in insolvency under s 459A of the Act prior to 27 August 2014.
36 That may be true.
37 However, Andrew Binetter and Ligon 158 knew of the liquidators' application before 27 August 2014 (probably from as early as the first week of August 2014) because they sent a lawyer to observe the hearing conducted by Registrar Grant on 27 August 2014. I infer that they would most likely also have been aware of the application from the Form 519 lodged by the liquidators with ASIC on 31 July 2014. Yet they deliberately chose not to appear before Registrar Grant. Had they been truly concerned about the fact of the liquidators' application or the submissions that might be made to Registrar Grant, they could have sought to intervene on 27 August 2014 or, if they were not ready to argue their case then, they could have sought to have the liquidators' application adjourned so that they could appear in due course to argue their case at a time when they were fully prepared. They did neither of those things.
38 Ligon 158 submitted that the Court should not make an order under s 459A of the Act in respect of a corporation which is already being wound up in a creditors' voluntary winding up unless there are good reasons for the Court to intervene by making a winding up order. It relied upon the observations made by Austin J in Carter v New Tel Ltd (2003) 44 ACSR 661 at 663 [5]. But the "good reason" test was criticised by the Full Court in CBA Corporate Services (NSW) Pty Ltd v Walker (2013) 212 FCR 444 (CBA v Walker) at 456 [40]-[43] and explained by Brereton J in Re Evcorp Grains Pty Ltd (No 2) [2014] NSWSC 155 at [15]-[19] as follows:
15 Accordingly, it seems to me that the position can be stated as follows.
16 First, while an unpaid creditor who establishes insolvency is usually regarded as entitled to a winding up order almost as of course, that is not so where the company is already in liquidation. The existence of a voluntary liquidation is a relevant consideration, so that where a voluntary liquidation is in place, there needs to be some justification for replacing it with a compulsory liquidation.
17 Secondly, such justification will ordinarily be found, if at all, in the interests of the administration and, in particular, the general body of creditors. Typically, the possibility that a court-appointed liquidator will be able to realise additional benefits for the creditors not available to a voluntary liquidator will provide such justification [Re Green (as liq of Australian Resources Ltd); Carter v New Tel; Deputy Cmr of Taxation v Tull Reinforcing].
18 Thirdly, on the other hand, the mere preferences of the plaintiff - such as a mere desire to replace the liquidator - are insufficient. This is because it would otherwise afford a means of circumventing s 503. Thus, where the sole purpose of proceeding with a winding-up application is to replace a voluntary liquidator with a court-appointed liquidator, the court adopts the same approach as on an application under s 503 to remove a liquidator and appoint another [Citrix Systems v Telesystems Learning; Neha Impex International v Mintz and Co; Commissioner of Taxation v Tull Reinforcing]. Likewise, it is not sufficient justification that making a winding up order will meet the plaintiff's desire to recover its costs [Commissioner of Taxation v Tull Reinforcing [2006] FCA 810; (2006) 153 FCR 394].
19 Finally, the views of the general body of creditors are also a relevant consideration. It would usually tell against a compulsory winding up if the majority of unrelated creditors supported continuation of a voluntary administration.
39 I do not discern in his Honour's explanation of the relevant principles a fundamental difference in approach from that which the Full Court said in CBA v Walker should be adopted. As the Full Court said (at 456 [42]):
While on one view it could reasonably be said that the phrase "for good reason" simply reflects a requirement that the power to order a winding up in insolvency should only be made in an appropriate case, there is a danger that that phrase could displace or distort the otherwise broad discretion conferred by s 459A. As the Full Court stated recently in Hua Wang Bank Berhad v Federal Commissioner of Taxation (2013)] 296 ALR 479 at [13] the substitution of other words for the terms of a statutory discretion is to be discouraged as it is likely to lead to error. That danger is manifest here where the appellants seek to impugn the primary judge's decision by reference to the fact that the particular matters which were accepted as "good reasons" in cases like New Tel and Re Green are not present here. Whether or not the discretion under s 459A should be exercised in any particular case necessarily turns on an assessment all the relevant circumstances. In our opinion, the broad discretion under that provision should not be inhibited by artificially introducing a requirement of "for good reason" as though that is part of the provision itself.
40 Of course, I am bound to follow the Full Court's exposition of the relevant principles. I intend to do so and to keep in mind the Full Court's views when evaluating the submissions made by Ligon 158.
41 Ligon 158 then submitted that the three reasons advanced by the liquidators in support of the orders which they sought did not justify the making of those orders. The liquidators' reasons were:
(a) The liquidators needed a Court order confirming their appointment in order to enable them effectively to investigate the affairs of BCI in Israel. Those investigations were likely to benefit the unsecured creditors of BCI as a whole;
(b) The liquidators wanted to have additional powers available to them in order to facilitate a rapid response from them should Andrew Binetter seek to flee Australia. The liquidators wanted to be in a position to act quickly to make applications under s 486A and s 486B of the Act which would, if successful, prevent Mr Binetter from leaving Australia; and
(c) The major creditor, the Deputy Commissioner of Taxation, did not object to the making of the orders sought in the application.
42 As to [41(a)] above, Ligon 158 submitted that the evidence relied upon by the liquidators did not support their argument. It argued that the evidence amounted to no more than that the liquidators' lawyer in Israel had told them that it would be helpful to have a Court order confirming their appointment. It was submitted that the evidence did not go so far as to suggest that a Court order was required or was necessary.
43 The evidence before the Court on 27 August 2014 on this matter comprised pars 34 to 36 of Mr Sheahan's affidavit of 13 August 2014. Those paragraphs are in the following terms:
34. Mr Lock and I wish to investigate and consider the proceedings that were commenced in a Court of Israel pursuant to the letter of request issued in accordance with the orders of 9 August 2012 in the Tax Proceedings, and to investigate the affairs of BCI Finances in Israel generally.
35. For this purpose, Mr Lock and I have retained a lawyer in Israel, Mr Dan Gross of Dardik Gross & Co of 14 Abba Hillel Silver Road, Ramat Gan, Israel.
36. On Thursday 24 July 2014, Mr Lock and I had a telephone conference with Mr Gross and other members of his firm. Australian lawyers engaged by Mr Lock and me also participated in that telephone conference and we maintain a claim for legal professional privilege in relation to the communications during the telephone conference. During the course of the telephone conference, Mr Gross asked us whether there is an order of a Court of Australia which confirms our appointment as liquidators of BCI Finances. Mr Lock and I understand that Mr Gross wishes for us to provide to him an order of a Court of Australia confirming our appointment as liquidators of BCI Finances so that Mr Gross can proceed to act for BCI Finances pursuant to instructions given to him by Mr Lock and me.
44 That evidence was not challenged by Ligon 158. It has since been supplemented.
45 In his longer affidavit affirmed on 20 October 2014 (at par 27), Mr Sheahan said that he and Mr Lock wish to obtain further documents from Bank Hapoalim in Israel in relation to BCI's affairs. On 14 October 2014, the liquidators' lawyer in Israel sent an email in the following terms to the liquidators and to the liquidators' Australian lawyers:
Re: BCI Finances Pty Limited (in liquidation)
Following your request we confirm that on 24 July 2014, during our telephone conference, we asked Mr. Sheahan and Mr Lock to provide us with a copy of an order of a Court of Australia appointing them as the legal liquidators of BCI Finances Pty Limited (in liquidation). We require this in order to use it to act on their instructions on behalf of BCI Finances Pty Limited (in liquidation) in Israel.
46 In my view, although the evidence is somewhat scant, the liquidators have established to my satisfaction that their Israeli lawyers required them to be appointed or confirmed as liquidators by Court order if those lawyers were to act effectively in Israel on their behalf in relation to the Court proceedings under way there and generally in relation to the investigations being undertaken there. I am satisfied that the creditors are likely to benefit from the liquidators' investigations in Israel.
47 As to [41(b)] above, Ligon 158 submitted that the 27 August 2014 orders did not improve the liquidators' position in relation to s 486A and s 486B of the Act. It contended that the mere filing of an application for an order to wind up BCI in insolvency would have been a sufficient basis upon which the liquidators could have proceeded under those sections and that actually obtaining such an order was not necessary. It also submitted that Mr Binetter was already constrained by a Departure Prohibition Order (DPO) issued by the Commissioner of Taxation and by freezing orders and other orders made by the Court. Ligon 158 also submitted that, in any event, even after the winding up order was made on 27 August 2014, it would still be necessary for the liquidators to make a separate application for any order under either s 486A or s 486B of the Act.
48 While the substance of Ligon 158's submissions is correct, there is force in the contrary position adopted by the liquidators, namely, that the greater certainty afforded by the circumstance that a winding up order has already been made justified the making of such an order. Further, there was no certainty that the DPO would remain in place indefinitely or that the Court orders would stay in place indefinitely.
49 As to [41(c)] above, the support of the Commissioner of Taxation carries significant weight when compared to the views of Ligon 158 which has a weak claim to be a creditor of BCI and which, on any view of the facts, has a relatively small claim in any event.
50 It should also be remembered that there is no prejudice to BCI or to Ligon 158 occasioned by the 27 August 2014 orders.
51 For all of the above reasons, I am not persuaded that I should undertake a review of the 27 August 2014 orders of my own motion. I do not consider that Ligon 158 has established sufficient reasons for me to do so. In any event, even if I were to undertake a review of those orders, I am not satisfied that the orders should be set aside.
52 For the same reasons, I am not prepared to grant to Ligon 158 any relief pursuant to r 2.13 of the Corporations Rules. Such relief would only be of use by providing the means for Ligon 158 to engage s 35A(5) of the FCAA. Given the views which I have expressed at [35]-[51] above (esp at [51]), there would be no utility in granting such relief.