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Civil Penalty Provisions of the Corporations Act 2001 and its potential relevance in shareholder disputes



Civil penalty provisions in the Corporations Act 2001 in the context of shareholder disputes

What is meant by Civil Penalty Provisions?

The civil penalty regime was introduced into the Corporations Act 2001 (“Act”) to enhance corporate governance and accountability in Australia and minimise the use of criminal law when dealing with corporate misconduct.  

Part 9.4B of Act addresses the ‘civil consequences’ of contraventions of the ‘civil penalty provisions’.

Section 1317E of the Act includes a lengthy table of which comprise the civil penalty provisions, which address the following 14 different areas:
  1. Officers' (eg directors’) duties - s180(1), s181(1), s181(2), s182(1), s182 (2), s183(1) and s183 (2)
  2. Responsibilities of secretaries etc. for corporate contraventions - s188(1) and s188 (2)
  3. Related parties rules - s209(2)
  4. Share capital transactions - s254L(2), s256D(3), s259F(2), and s260D(2)
  5. Requirements relating to financial reporting - s344(1) and s344(1A)
  6. Obligation to declare and publish notice if company not eligible for temporary restructuring relief - s458F(1)
  7. Insolvent trading - s588G(2)
  8. Preventing creditor-defeating dispositions -s588GAB(2)
  9. Procuring creditor-defeating dispositions - s588GAC(2)
  10. Duties of responsible entities - s601FC(1)
  11. Duties of officers of responsible entities - s601FD(1)
  12. Duties of employees of responsible entities - s601FE(1)
  13. Duties of officers and employees of responsible entities - s601FG
  14. Duties of officers and employees of responsible entities - s601JD(1)
Litigation matters involving contraventions of the civil penalty provisions commonly deal with breach of directors’ duties, breach of continuous disclosure requirements for companies listed on the Australian Securities Exchange (“ASX”) and large corporate collapses, to name only a few. In these matters, forensic accountants and/or valuation experts are relied on to opine on matters concerning either or both of liability e.g. what disclosure ought to have been made and when, and matters of quantum, e.g. what was the value of the shares.

What can the court do if there is a contravention of the civil penalty provisions?

An Australian court can issue one or more orders involving contravention of the civil penalty provisions: 
  1. a declaration that there has been a contravention of the civil penalty provisions, which can trigger other consequences, e.g. orders for the disqualification of a director from acting as a director, criminal prosecution, other civil litigation, etc;
  2. a pecuniary penalty to be paid;
  3. relinquishment of the benefit obtained from breaching the civil penalty provisions;
  4. refunds for ongoing fees after termination of an arrangement(e.g. charged by financial advisers, investment managers and subscription providers); and
  5. compensation orders.
In Australia, there are far too many examples where the court has issued multiple orders for a contravention of the civil penalty provisions. One prime example involves Rodney Adlar, who was a director of HIH Insurance Ltd in January 1999 which collapsed not too long after its acquisition of FAI Insurance. Many separate litigation proceedings commenced following the collapse of HIH Insurance Ltd. Mr Adler, and other culpable defendants, were ordered to pay compensation of $7,986,000 for losses suffered by HIH Insurance Ltd and Mr Adler was ordered to repay improper benefits, pay pecuniary penalties and was disqualified to act as a director for 20 years. Mr Adler also served prison time following his admission of guilt in criminal proceedings initiated against him.

In the matter of ASIC v Vizard [2005] FCA 1037, involving a well-known Australian media personality at that time, who was then a company director of Telstra Corporation Ltd, acted on ‘insider information’ and was banned for 10 years from managing a corporation and ordered to pay a pecuniary penalty of $130,000 for each of 3 contraventions totalling $390,000.

While the Adler and Vizard cases are just 2 examples of breach of director duties that involved ASX listed companies (which typically garners high media attention and public interest), there are many other court cases involving a contravention of civil penalty provisions that feature private companies.  

The Act refers to the use of a ‘person’ who has contravened the civil penalty provisions. A person can include directors, officers, or the company itself. Therefore, applications to commence civil litigation for a contravention of the civil penalty provisions can be made by:
  1. the Australian Securities and Investments Commission (ASIC), which happens to have a long history of successful proceedings against directors of ASX listed companies;
  2. the company involved; and/or
  3. any person who has suffered loss or damage (e.g, shareholders or creditors).  
It is the plaintiff shareholder that is of particular interest within this article because if the shareholder can prove a contravention of the civil penalty provisions under the Act, then this opens up the potential for direct compensation to be received following the court’s orders.

Compensation sought in the context of shareholder disputes – issues for lawyers and experts to consider

In our practice, and in talking to other forensic accountants and valuation experts within other firms, we have observed a steady stream of shareholder disputes involving private companies.  

Commonly, shareholder disputes can feature an allegation of oppression made by one or more shareholders, which typically requires the forensic accountant and valuation expert to consider what the value of the shares in the company currently is (or was at one or more different points in time), to assist in a buy and/or sell negotiated outcome or court order under s233 of the Act.  

In the context of considering ‘value’ in oppressive conduct matters, Richard Brockett, wrote in 2012 for the Bond Law Review, the following about the compensatory nature of the available remedy for minority shareholders:

“in his judgment in Scottish Co-operative Wholesale Society Ltd v Meyer[1], Lord Denning held that a purchase order ‘gives to the oppressed shareholders what is, in effect, money compensation for the injury done to them’. This was followed in Re a Company No 002612 of 1984[2] and in Rankine v Rankine where it was noted that ‘by ordering the compulsory purchase of the applicant’s shares…the court is in effect awarding compensation for the respondent’s breach of duty’[3]. The compensatory nature of the remedy was regarded by the Court, in Smith Martis Cork & Rajan Pty Ltd and Others v Benjamin Corporation Pty Ltd, as being ‘established ever since the decision of the House of Lords in Scottish Co-operative Wholesale Society Ltd v Meyer’[4].”

It is common for an expert witness instructed by lawyers on behalf of the plaintiff shareholders(s) in court proceedings to be asked for an opinion on the ‘value’ of the asset.  

The Act simply defines ‘value’ to be an “amount” in relation to the asset, which is not particularly helpful. Therefore, an issue of contention that can arise is what should be the appropriate basis (or standard) of value? Should this be ‘market value’, ‘fair value’, ‘true value’ or something else?  

In relation to the term ‘market value’, the International Valuation Standards issued by the International Valuation Standards Committee provides a useful definition for market value which appears to be uniformly adopted by valuation professionals around the world, have is grounded in different courts’ interpretation of its meaning. However, the concepts of ‘fair value’, ‘true value’ and other types of value can be difficult to define in a way that is not subject to challenge so it is suggested that expert witnesses request their instructing lawyers to provide further guidance through the supply of relevant cases.  

An additional contentious issue between adversarial parties involving claims for corporate oppression may be the appropriate point(s) in time the assessment of value should be made. As value can change over time, it can be challenging for a plaintiff lawyer to have confidence in what the appropriate valuation date should be.

Lawyers and expert witnesses should consider pleading (subject to having reasonable grounds) a contravention of the civil penalty provisions under the Act and an order of compensation as a remedy, thus triggering s1317H of the Act.  

Section 1317H of the Act empowers the court to order a person who has contravened to compensate those who have suffered loss or damage due to that contravention. It is worth looking at the words used in s1317H(1) and s1317H(2) of the Act which are:

"Compensation for damage suffered

 (1) A Court may order a person to compensate a corporation, registered scheme or notified foreign passport fund for damage suffered by the corporation, scheme or fund if:

 (a) the person has contravened a corporation/scheme civil penalty provision in relation to the corporation, scheme or fund; and

 (b) the damage resulted from the contravention.
The order must specify the amount of the compensation.
Note: An order may be made under this subsection whether or not a declaration of contravention has been made under section 1317E.

Damage includes profits

 (2) In determining the damage suffered by the corporation, scheme or fund for the purposes of making a compensation order, include profits made by any person resulting from the contravention or the offence." 

[underlining above reflects author’s emphasis]

Two useful features to consider in relation to any compensation sought under s1317H for contravention of the civil penalty provisions are: a) damage (for loss of profit) means something different to value; and b) the potential for defendants to be held joint and severally liable to pay compensation.

'Damage' is more nuanced than pure valuation work

While an assessment of loss profits and an assessment of value involve similar methods and processes required to be undertaken by an expert witness in court proceedings to quantify the output, the former may include direct financial losses and could extend to consequential losses that are a direct result of the contravention. 
 
In matters concerning the quantum of compensation, the forensic accountant who has been retained to act as an expert witness in court proceedings, will typically consider a financial scenario that assumes the pleaded contravention of the civil penalty provisions, had not occurred, as part of the quantification exercise. This may be referred to as the ‘but-for’ test that applies in many claims for damages in tort.  

It seems Australian courts are prepared to unwind the effects of the oppressive conduct to determine value, as it did in the Rankine matter, however, an expert witness tasked to opine on value should be mindful of whether the opinion on the value of the asset at a particular point in time is likely to be affected by the alleged oppressive conduct and if so, how this alleged oppressive conduct can be quantified and attempt to quantify it, assuming it can be done with the evidence made available to the expert and other documents to be obtained.

An exercise to quantify compensation under s1317H of the Act may require assessing the loss by looking back from the present date, which may be referred to as adopting an ‘ex-post approach’. This can be contrasted with an a pure ‘valuation’ exercise, which typically requires an assessment of value at a particular date, having regarding only to those known facts or knowable facts that could be obtained through reasonable due diligence, at the relevant valuation date. A pure valuation exercise involving the value of an asset at a historical point in time may be referred to as adopting an ‘ex-ante approach’, where the benefit of hindsight should be ignored.

The potential for joint and several liability for compensation orders

Let’s say, hypothetically, a director of a company accused of contravening the civil penalty provisions, started a competing company which has been trading for a significant period of time. Consideration might then be made to include the competing company as a defendant and the compensation could be assessed on profits made by the competing company. If multiple parties are responsible for the contravention, the Courts may hold the defendants jointly and severally liable for the compensation[5].
    
Conclusion and summary

The inclusion of a claim for an order for compensation under s1317H of the Act in pleadings connected to court proceedings involving shareholder disputes should be carefully considered by a forensic accountant called on as an expert witness because the gathering of the relevant evidence concerning the quantum of compensation sought should not automatically be confined to considering just the value of the company at a single point in time.



Endnotes
[1]. [1958] 3 All ER 66
[2]. (1986) 2 BCLC 99, 495
[3]. 1995) 124 FLR 340
[4]. (2004) 207 ALR 136, [71]-[72]
[5]. ASIC v Hellicar (2012) 247 CLR 345 and Bell Group Ltd (in liq) v Westpac Banking Corporation (2008) 39 WAR 1

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