Andrew Lacey
Managing Principal
On 12 July 2023, the Australian Commonwealth’s Parliamentary Joint Committee on Corporations and Financial Services (Committee) released its landmark report on the state of corporate insolvency in Australia (Report).
As distinct from individual or personal insolvency (i.e. bankruptcy), the Report’s findings and recommendations speak to the state of Australia’s corporate insolvency regime. The publication of the Report has been highly anticipated, given there have been no comprehensive reviews of Australia’s corporate insolvency regime of note since the tabling of the Australian Law Reform Commission’s general insolvency inquiry (also known as the Harmer Report) on 13 December 1988.
The Commission asked whether the current corporate (and to some extent personal insolvency) regime is fit for purpose within modern Australia and if its frameworks are in line with international standards.
In short, the Committee found that Australia’s corporate insolvency system is overly complex, difficult to access, unnecessarily costly and confusing. The Report observed that few stakeholders are satisfied with the system as it stands today and that it may not have kept up to speed with modern business practices or needs.
Insolvency law is generally understood as a regime which provides for the fair and orderly process of dealing with the financial affairs of companies when they are no longer able to pay their debts as and when they fall due.
In Australia, the three most common insolvency procedures are voluntary administration, receivership and liquidation, with their basic features set out below:
To those who do not engage in the processes of corporate insolvency regularly, the system may however appear to be opaque and without clear purpose.
In dealing with a company’s financial affairs, there exists a tension between the insolvent debtor who owes money, and the creditors who may be owed large sums in arrears. The mechanisms of insolvency law are intended to provide an impartial and efficient process for administering those competing claims and providing relief for all involved. In addition, there is a rehabilitative aspect to insolvency law, as a number of insolvency processes, notably voluntary administration, focus on maximising the chances of a struggling company to be rehabilitated and continue in existence.
It is clear that there are many “purposes” of corporate insolvency, but as noted by the Committee, a clearly stated purpose of Australia’s insolvency law is substantially absent in legislation. This includes a lack of legislative ‘objects clause’ for insolvency in the Corporations Act 2001 (Cth), the principal legislation governing the obligations and responsibilities of companies and other business entities.
At first instance, the Committee:
“considers there would be value in more clearly articulating, in legislation and policy, the guiding principles and objectives of the corporate insolvency system. This will help facilitate ongoing assessment of how the system is performing and enhance transparency and understanding of it.”
The implementation of corporate insolvency reform since the implementation of the recommendations by the Harmer Report has been piecemeal in nature and scope, responding to discrete issues and challenges rather than having regard to the system as a whole. This has added further complexity to the systems of corporate insolvency, further obscured its purpose, and as the Committee noted – adding inconsistencies which make it all the harder and more costly to navigate.
The Committee’s conclusion was that, to address the shortcomings of the corporate insolvency system, there is need for an independent and comprehensive review that addresses the system as a whole.
The key matters to be addressed include:
The Committee acknowledged that comprehensive review may take some time to be incorporated (e.g. the Harmer Report recommended the creation of the voluntary administration regime which was legislated five (5) years later), but nonetheless identified several key steps which could be taken by ASIC and/or the Federal Government in the near term, including:
Only time will tell which of the recommendations of the Committee will be taken on board and what legislative changes will come as a result. As the Report has identified, there are a number of key deficiencies within the Australian corporate insolvency landscape and a comprehensive overhaul of the system is required. The Commission rightly calls for a holistic “root and branch” review that looks not only to the current legislative complexity, but also the economic realities that Australian businesses find themselves in.
McCabes’ Litigation and Dispute Resolution team has extensive experience in advising large to small companies as well as directors, liquidators, creditors and other stakeholders of companies in an insolvency context. If any of the matters raised in this article are applicable to you, please get in touch.