Legislative background
6 The Model Law operates in Australia by reason of s 6 of the CBI Act. It has the force of law here as if it referred to, inter alia, the Bankruptcy Act 1966 (Cth) (the Bankruptcy Act) wherever it refers to "the law of the enacting State relating to insolvency": CBI Act, s 8.
7 This Court is competent to perform the functions referred to in the Model Law relating to the recognition of foreign proceedings and cooperation with foreign courts: CBI Act, s 10. The jurisdiction of this Court to deal with the application is undoubted.
8 The provisions of the Model Law and the CBI Act relevant to applications such as the present were identified succinctly in Wong (Trustee), in the matter of Mackellar (Bankrupt) v Mackellar [2020] FCA 1151 [16] - [28] (Mackellar). I adopt that summary for the purposes of these reasons and set it out as follows:
16 By Art 1(a) of the Model Law it has application where assistance is sought in Australia by a foreign court or a foreign representative in connection with a foreign proceeding. Some of the terms used in Art 1(a) are defined by Art 2 as follows:
(a) Art 2(a) defines "foreign proceeding" in the following terms:
(a) "Foreign proceeding" means a collective judicial or administrative proceeding in a foreign State, including an interim proceeding, pursuant to a law relating to insolvency in which proceeding the assets and affairs of the debtor are subject to control or supervision by a foreign court, for the purpose of reorganization or liquidation;
(b) Art 2(d) defines a Foreign Representative as follows:
(d) "Foreign representative" means a person or body, including one appointed on an interim basis, authorized in a foreign proceeding to administer the reorganization or the liquidation of the debtor's assets or affairs or to act as a representative of the foreign proceeding.
17 Article 2 also provides definitions for other important terms:
(a) A "foreign main proceeding" is defined as:
"Foreign main proceeding" means a foreign proceeding taking place in the State where the debtor has the centre of its main interests;
(b) The expression "foreign non-main proceeding" is identified as follows:
"Foreign non-main proceeding" means a foreign proceeding, other than a foreign main proceeding, taking place in a State where the debtor has an establishment within the meaning of subparagraph (f) of the present article.
18 The effect of Art 4, together with s 10 of the Act, is that the functions referred to in the Model Law relating to the recognition of foreign judgments and cooperation with foreign courts shall be performed by the Federal Court where the proceedings involve a debtor who is an individual.
19 Article 6 of the Model Law creates a public policy exemption to the obligation of a court to take action in relation to a matter arising under it. It provides:
Public policy exception
Nothing in the present Law prevents the court from refusing to take an action governed by the present Law if the action would be manifestly contrary to the public policy of this State.
20 Article 15 of the Model Law makes provision for a foreign representative to apply for recognition of the foreign proceedings as follows:
Application for recognition of a foreign proceeding
1. A foreign representative may apply to the court for recognition of the foreign proceeding in which the foreign representative has been appointed.
2. An application for recognition shall be accompanied by:
(a) A certified copy of the decision commencing the foreign proceeding and appointing the foreign representative; or
(b) A certificate from the foreign court affirming the existence of the foreign proceeding and of the appointment of the foreign representative; or
(c) In the absence of evidence referred to in subparagraphs (a) and (b), any other evidence acceptable to the court of the existence of the foreign proceeding and of the appointment of the foreign representative.
3. An application for recognition shall also be accompanied by a statement identifying all foreign proceedings in respect of the debtor that are known to the foreign representative.
21 Section 13 of the CBI Act imposes additional requirements on the making of an application for recognition:
13 Application for recognition of foreign proceeding
In addition to the requirement in paragraph 3 of Article 15 of the Model Law (as it has the force of law in Australia) that an application for recognition be accompanied by a statement identifying all foreign proceedings in respect of the debtor that are known to the foreign representative, the application must be accompanied by a statement identifying:
(a) all proceedings under the Bankruptcy Act 1966 in respect of the debtor; and
(b) any appointment of a receiver (within the meaning of section 416 of the Corporations Act 2001), or a controller or a managing controller (both within the meaning of section 9 of that Act), in relation to the property of the debtor; and
(c) all proceedings under Chapter 5 of the Corporations Act 2001, section 601CL of that Act or Schedule 2 to that Act, in respect of the debtor;
that are known to the foreign representative.
22 Article 16 of the Model Law is a facilitative provision which assists in the proof of the matters required to be established under Art 15:
Presumptions concerning recognition
1. If the decision or certificate referred to in paragraph 2 of article 15 indicates that the foreign proceeding is a proceeding within the meaning of subparagraph (a) of article 2 and that the foreign representative is a person or body within the meaning of subparagraph (d) of article 2, the court is entitled to so presume.
2. The court is entitled to presume that documents submitted in support of the application for recognition are authentic, whether or not they have been legalized.
3. In the absence of proof to the contrary, the debtor's registered office, or habitual residence in the case of an individual, is presumed to be the centre of the debtor's main interests.
23 The circumstances in which a foreign proceedings will be recognised are identified in Art 17:
1. Subject to article 6, a foreign proceeding shall be recognized if:
(a) The foreign proceeding is a proceeding within the meaning of subparagraph (a) of article 2;
(b) The foreign representative applying for recognition is a person or body within the meaning of subparagraph (d) of article 2;
(c) The application meets the requirements of paragraph 2 of article 15;
(d) The application has been submitted to the court referred to in article 4.
2. The foreign proceeding shall be recognized:
(a) As a foreign main proceeding if it is taking place in the State where the debtor has the centre of its main interests; or
(b) As a foreign non-main proceeding if the debtor has an establishment within the meaning of subparagraph (f) of article 2 in the foreign State.
3. An application for recognition of a foreign proceeding shall be decided upon at the earliest possible time.
4. The provisions of articles 15, 16, 17 and 18 do not prevent modification or termination of recognition if it is shown that the grounds for granting it were fully or partially lacking or have ceased to exist.
24 The expression "establishment" in Art 17 is defined by Art 2(f) as being:
(f) "Establishment" means any place of operations where the debtor carries out a non-transitory economic activity with human means and goods or services.
25 The effect of the above articles and provisions of the CBI Act is that if the prescriptive requirements are satisfied the foreign proceedings must be recognised by the court unless such recognition would be manifestly contrary to the public policy of Australia: Kapila, in the matter of Edelsten (2014) 320 ALR 506, 511 [22] (Re Edelsten).
26 The effect of the recognition of a foreign proceeding is stated by Art 20(1) which provides:
Effects of recognition of a foreign main proceeding
1. Upon recognition of a foreign proceeding that is a foreign main proceeding:
(a) Commencement or continuation of individual actions or individual proceedings concerning the debtor's assets, rights, obligations or liabilities is stayed;
(b) Execution against the debtor's assets is stayed;
(c) The right to transfer, encumber or otherwise dispose of any assets of the debtor is suspended.
27 Article 21 grants power to the court to accord the foreign representative additional relief:
Relief that may be granted upon recognition of a foreign proceeding
1. Upon recognition of a foreign proceeding, whether main or non-main, where necessary to protect the assets of the debtor or the interests of the creditors, the court may, at the request of the foreign representative, grant any appropriate relief, including:
…
(d) Providing for the examination of witnesses, the taking of evidence or the delivery of information concerning the debtor's assets, affairs, rights, obligations or liabilities;
(e) Entrusting the administration or realization of all or part of the debtor's assets located in this State to the foreign representative or another person designated by the court;
28 Additional procedural requirements on the making of an application for recognition are imposed by r 14.03 of the Federal Court (Bankruptcy) Rules 2016 (Cth) (Federal Court Bankruptcy Rules) which provide:
(1) An application by a foreign representative for recognition of a foreign proceeding under article 15 of the Model Law must be made by filing an application in accordance with Form B2.
(2) The application must:
(a) be accompanied by the statements mentioned in article 15 of the Model Law and in section 13 of the Cross‑Border Insolvency Act; and
(b) name the foreign representative as the applicant and the debtor as the respondent; and
(c) be accompanied by an affidavit verifying the matters mentioned in paragraphs 2 and 3 of article 15 of the Model Law and in section 13 of the Cross‑Border Insolvency Act.
(3) When filing the application, the foreign representative must file, but need not serve, an interim application seeking directions as to service, and the Court may give any directions about service, and make any incidental orders, that it thinks just.
(4) The applicant must serve a copy of the application and the other documents mentioned in subrule (2):
(a) unless the Court otherwise orders - on each respondent (if any) to the proceeding as soon as practicable after filing an application and, in any case, at least 5 days before the date fixed for hearing; and
(b) on any other persons the Court may direct at the hearing of the interim application.
(5) A person who intends to appear before the Court at the hearing of an application for recognition must file and serve the documents mentioned in rule 2.04.
9 It is also undoubted that Singapore is, for the purposes of s 29(5)(b) of the Bankruptcy Act, a prescribed country: see Bankruptcy Regulations 2021 (Cth), reg 7(d). Furthermore, the Singaporean High Court is a court of that country which has jurisdiction in bankruptcy: s 3 of the IRD Act; and, accordingly, the Singapore Proceeding in that court is a proceeding in respect of which orders may be made under s 29(2) of the Bankruptcy Act.