O'Sullivan v ASIC

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O'Sullivan and Australian Securities and Investments Commission [2017] AATA 644 (2 May 2017)

Administrative Appeals Tribunal

ADMINISTRATIVE APPEALS TRIBUNAL               )
  )         No: 2015/0837-0838
TAXATION AND COMMERCIAL DIVISION             )

Re: Michael O'Sullivan
Applicant

And: Australian Securities & Investments Commission
Respondent

DIRECTION

TRIBUNAL:               Professor R Deutsch, Deputy President

DATE:   30 May 2017

PLACE:                     Sydney

The Tribunal directs the Registrar, pursuant to subsection 43AA(1) of the Administrative Appeals Tribunal Act 1975, to alter the text of the decision in this application as follows:

1.the decision on page 1 by deleting “Shaw” and inserting “Sean”;

2.the index on page 11 by deleting “Shaw” and inserting “Sean”;

3.the heading between paragraphs 720 and 721 by deleting “Shaw” and inserting “Sean”;

4.paragraph 721 by deleting “Shaw” and inserting “Sean”;

5.paragraph 748 by deleting “Shaw” and inserting “Sean”.

..................................[sgd].................................

Professor R Deutsch, Deputy President

Division:TAXATION & COMMERCIAL DIVISION

File Number(s):      2015/0837

2015/0838

Re:Michael O'Sullivan

APPLICANT

AndAustralian Securities and Investments Commission

RESPONDENT

DECISION

Tribunal:Professor R Deutsch, Deputy President

Date:2 May 2017

Place:Sydney

The Tribunal affirms the decision of the Australian Securities and Investments Commission dated 16 February 2015 prohibiting Mr O’Sullivan from providing financial services for a period of seven years under s 920A(1)(e) of the Corporations Act 2001 (Cth).

The Tribunal sets aside the decision of the Australian Securities and Investments Commission dated 16 February 2015 made under s 206F of the Corporations Act 2001 (Cth) and in substitution decides that under s 206F of the Act, Mr O’Sullivan is disqualified from managing a corporation for a period of five years with the qualification that Mr O’Sullivan is permitted to remain as a director of three private companies, namely, Bernard Shaw Holdings Pty Ltd, Provident Asset Management Pty Ltd and Amira Holdings Pty Ltd, provided that at no time are those companies involved in any activities which involve persons or entities that are not part of Mr O’Sullivan’s immediate family.

....................................[sgd]....................................

Professor R Deutsch, Deputy President

CATCHWORDS

CORPORATIONS – director – company – debentures – loans – construction loan – arrears – disqualified from managing corporations – failed to discharge duty with required degree of care and diligence – failure to obtain up to date valuations of property – excessive loan to valuation ratio – capitalised interest – changed maturity date of loan – lack of provisioning – misleading or deceptive conduct – disclosure requirements – prospectuses and reports – loan not identified as in arrears or default – material prejudice to debenture holders – failure to ensure information in reports accurate and complete – gained an advantage – release from guarantee – disqualification period appropriate – whether leave to manage certain companies – companies involving immediate family members – banning order – prohibited from providing financial services – failed to comply with financial services law – misleading or deceptive conduct – prospectuses and reports – period of ban appropriate – decision affirmed and decision set aside and decision made in substitution

PRACTICE AND PROCEDURE – application to re-open proceedings –…

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Details
Case
[2017] AATA 644
Decision Date

CaseChat Overview and Summary

This matter concerned an appeal by Mr O’Sullivan to the Administrative Appeals Tribunal (the Tribunal) against two decisions made by an Australian Securities and Investments Commission (ASIC) delegate. The first decision disqualified Mr O’Sullivan from managing corporations for a period of seven years, and the second decision prohibited him from providing financial services for the same duration. The dispute arose from Mr O’Sullivan's involvement with Provident Capital Limited (Provident), a company that issued debentures and engaged in asset lending, primarily through first mortgage loans.

The legal issues before the Tribunal were whether Mr O’Sullivan had contravened financial services laws, specifically by engaging in misleading or deceptive conduct in relation to financial products and by being involved in Provident's contravention of financial services law in connection with the publication of a prospectus. The Tribunal was required to determine if the disqualification and banning orders made by the ASIC delegate were the correct or preferable decisions in all the circumstances, considering factors such as the protection of the public, deterrence, punishment, and the maintenance of professional standards.

The Tribunal conducted an independent assessment of the facts and the law, rather than merely reviewing the delegate's decision for error. It considered that Mr O’Sullivan had not complied with financial services law by engaging in misleading or deceptive conduct concerning Provident's debentures, and that he had been involved in Provident's contravention of financial services law regarding its prospectus. The Tribunal found that Provident's operations were more complex than merely making loans, involving the raising of funds from the public through debentures. The Tribunal noted significant issues with Provident's lending practices, including a high level of defaulting borrowers, inadequate enforcement actions, insufficient provisioning for defaulting loans, and a failure to obtain up-to-date property valuations, which ultimately led to Provident's liquidation with a substantial deficiency.

The Tribunal affirmed the ASIC delegate's decisions, finding that the seven-year disqualification and banning periods were appropriate in light of Mr O’Sullivan's conduct and the need to protect the public and maintain market integrity.

Orders

Orders of the court

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Background

Background to the litigation

There was considerable disagreement about the facts in this case. The facts as found by the Tribunal are set out below. Relevant areas of contention regarding the facts as between the parties are highlighted in bold and where possible considered and resolved as they arise.A. BACKGROUND FACTS PERTAINING TO PROVIDENT(a) Provident – Structure and Directors Provident Capital Limited (Provident) was incorporated on 25 May 1998. Provident is a wholly owned subsidiary of Provident Asset Management Pty Ltd (Provident Asset Management), of which Mr O’Sullivan is the sole shareholder. Provident Asset Management holds the shares in Provident on trust for the O’Sullivan Trust and the Provident Trust. Mr O’Sullivan and members of his family are beneficiaries of those trusts. Since July 2000, the directors of Provident and their relevant dates of service were as follows: Mr Slobodan (Robert) Sukic was a director of Provident from 27 November 1998 to 30 June 2000. At all relevant times, John Fulker was Provident's chief operating officer, and Derek "Butch" Hornby was Provident's chief financial officer.(b) Provident’s Activities ASIC characterised Provident's main business as the issuing of debentures and investment of funds by way of asset lending, primarily in first mortgage loans. Provident’s lending covered residential, commercial, industrial and rural property. Mr O’Sullivan characterised Provident’s main business as the making of loans to borrowers, primarily for the purpose of financing property acquisitions or property developments. The Tribunal accepts as a fact that the business conducted by Provident went beyond that of making loans to borrowers as contended by Mr O’Sullivan. Its operations were more sophisticated and extended to a relatively complex process involving the issue of debentures to raise funds more broadly from the public at large. Provident made loans to borrowers and raised funds for that purpose from:(a)the proceeds of debentures issued by Provident to members of the public from time to time between 1998 and 2012 pursuant to a debenture trust deed dated 11 December 1998; and (b)borrowings from Bendigo and Adelaide Bank (ABL) under a wholesale lending facility with Provident, entered into in or about August 2007 (ABB Facility). The ABB facility initially expired on 17 August 2011, but was extended to 31 March 2012 whilst the terms of an extension or replacement facility were considered. The facility was not extended beyond 31 March 2012. As regards loans made or refinanced by Provident and funded by the ABB facility (the ABB Portfolio), the loans and related mortgages were transferred in equity to ABL, which had an equitable interest over those loans. ASIC asserts that the interest paid on loans in the ABB Portfolio was swept straight to ABL’s nominee. Mr O’Sullivan asserts that this is inaccurate. According to Mr O’Sullivan, for the first four and a half years of the ABB Facility, Provident’s customers made their payments to Provident and Provident then paid ABL, at the end of the month, the interest owed under the ABB facility.

Evidence

Evidence Before The Court

Mr O’Sullivan asserts that the evidence referred to by the Respondent does not support that allegation and that it is not clear what ASIC refers to as restrictions. Cashflow and Provident were related companies for the purposes of s 50 of the Act. Cashflow’s business was to provide short term inventory financing loans to small and medium size enterprises.(c) Mr O’Sullivan’s background and the financial benefit he gained from Provident Mr O’Sullivan asserts that prior to the establishment of Provident he had extensive business experience in lending, acting as an intermediary between lenders and borrowers and property development: Exhibit A1 paras 7-9. While not contradicting this assertion the Respondent does not explicitly agree. The Tribunal accepts that Mr O’Sullivan has the requisite experience. During the financial years 2008 to 2011, Mr O’Sullivan received the following salary payments from Provident (not including superannuation): Between 1 July 2006 and 30 June 2010, ASIC asserts that Provident paid in the order of $10 million in dividends to Provident Asset Management, which was wholly owned by Mr O’Sullivan and that those payments benefitted Mr O’Sullivan and his family. Mr O’Sullivan asserts that this is not accurate. In particular he asserts that the shares in question were more accurately held on trust for him and his family and not by him personally. No disagreement was voiced as to the size of the dividend but the relevance of the size of the dividend was questioned by Mr O’Sullivan. The Tribunal accepts Mr O’Sullivan’s factual assertion that the shares in question were held on trust for Mr O’Sullivan and his family.(d) Provident’s Receivership and Liquidation On 3 July 2012, Anthony Sims, Philip Carter and Marcus Ayres of PPB Advisory were appointed by the Federal Court as joint and several receivers of Provident (Provident Receivers) upon application by AETL for an order pursuant to s 283HB(1) of the Act. As at this date, Provident’s total loans under management were approximately:(a)$150 million in the FTI Portfolio;(b)$74 million in the ABB Portfolio; (c)$712,000 in the HYF; and (d)$31.4 million in the Monthly Income Fund. On 24 October 2012, Provident was wound up as a result of a resolution of creditors pursuant to s 439C of the Act. The liquidators of Provident are Anthony McGrath and Joseph Hayes of McGrath Nicol (Provident Liquidators). In their report to ASIC dated 18 December 2012 the Provident Liquidators estimated that the return to unsecured creditors may be 0 cents in the dollar. Provident was wound up with an estimated deficiency of $77,746,869. Liabilities included $201,634,546 owing to debenture holders. The Provident Liquidators stated in their report of 30 October 2013 prepared pursuant to s 533 of the Act that in their opinion:The key reasons for failure of the company include:·significant level of defaulting borrowers by loan value (greater than 90% of the fixed term investment portfolio);·poor level of enforcement action against defaulting borrowers;·inadequate provisioning and impairment of defaulting loans;·failure to obtain current valuations for property securities; and·misconduct by [Provident] directors … and generally poor management.

Decision

Reasons for decision

The second decision, made under ss 920A and 920B of the Act, was to prohibit Mr O’Sullivan from providing financial services for a period of seven years (the Banning Decision). In so deciding, the delegate found that:(a)for the purposes of s 920A(1)(e) of the Act, Mr O’Sullivan had not complied with a financial services law, namely, s 1041H of the Act, in that Mr O’Sullivan had engaged in conduct regarding a financial product (being debentures issued by Provident) which was misleading or deceptive or likely to mislead or deceive in contravention of that provision;(b)for the purposes of s 920A(1)(g) of the Act, Mr O’Sullivan had been involved in the contravention by Provident of a financial services law, being s 728 of the Act, in connection with the publication by Provident of a prospectus. This is a review of each of those two decisions of the ASIC delegate under s 1317B of the Act. The Tribunal has the power to review the Decisions under s 25 of the Administrative Appeals Tribunal Act 1975 (Cth) (the AAT Act). The object of review of a decision by the Tribunal is to determine what is the correct or preferable decision: Shi v Migration Agents Registration Authority [2008] HCA 31; (2008) 235 CLR 286. The Tribunal’s task is not to review the delegate’s decision for error but rather reach a separate decision based on the facts as presented. In other words, the Tribunal must reach its own conclusions by conducting its own, independent assessment and determination of the matters necessary to be addressed. The Tribunal will address the same question as was required to be addressed by the original decision-maker but do it afresh: Shi at [140]-[142] per Kiefel J; see also Yao v Minister for Immigration and Border Protection [2014] FCAFC 17 at [41] per Perry J (White and Wigney JJ agreeing). Accordingly, the question for this Tribunal is whether or not the disqualification order and banning order made by the delegate were the proper orders in all of the circumstances, having regard to a number of matters including most particularly: (a)the protection of the public;(b)specific and general deterrence and punishment; and (c)maintaining professional standards. These matters are relevant and important as is evident from the decisions in Australian Securities and Investments Commission v Adler [2002] NSWSC 483; (2002) 42 ACSR 80 at [55]-[56] and Australian Securities and Investments Commission v Vizard [2005] FCA 1037; (2005) 145 FCR 57 at [35] and from the Regulatory Guide 98 (RG 98) published by ASIC which was updated in July 2013. FACTS There was considerable disagreement about the facts in this case. The facts as found by the Tribunal are set out below. Relevant areas of contention regarding the facts as between the parties are highlighted in bold and where possible considered and resolved as they arise.A. BACKGROUND FACTS PERTAINING TO PROVIDENT(a) Provident – Structure and Directors Provident Capital Limited (Provident) was incorporated on 25 May 1998.

Ratio Decidendi

Legal Principle Established

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