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Imagine a debtor DR1. DR1 has two assets, A and B.[13] DR1 has granted security over A and B to secure a debt to SP1. Subsequently, DR1 has granted security over A (only) to SP2 to secure a debt to SP2 such that SP2’s interest in asset A is junior to SP1’s (hence the numbering). That is, SP2 has no security interest in asset B.Now imagine that DR1 has defaulted on its obligations to both SP1 and SP2. SP1 decides to enforces its security against asset A instead of asset B. The proceeds of realisation are sufficient to pay out SP1, but there is not enough left to pay out SP2. Can SP2 assert SP1’s security interest in asset B, at least up to the lesser of the amount SP1’s security interest secured before realisation, and the amount left owing to SP2 under its (eroded) security?
… the junior creditor will, via the intervention of equity, be placed in the position of of the senior creditor, as against those other assets of the debtor which are subject to only the senior creditor’s security, to the extent of any deficiency in the junior creditor’s security.[14]
… prevails over the trustee in bankrupty, receiver or liquidator of the debtor and the debtor’s real and personal representatives.[18]
Assume the same basic facts as above. But now further assume that DR1 subsequent to the grant of security interests to SP1 over assets A and B grants a junior security interest over asset B to SP3.[19] SP1 realises by enforcement against asset A, as before. Can SP2 still marshall SP1’s interest?
… [t]he junior creditor [(SP2)] would … be inflicting upon the third party [(SP3)] the very thing that provides the impetus for the intervention of the doctrine of marshalling on the junior creditor’s behalf. … The iniquity of allowing the junior creditor an unmodified right to marshall becomes obvious when it is realised that the third party is in an equivalent position to the junior creditor qua the senior creditor [(SP1)].[21]
The nature of the interest Marshalling rights represent: a sui generis interest
… an ‘inchoate equity’ (which whilst falling short of an equitable interest or estate is superior to a ‘mere equity’) …[33]
The conditions for Marshalling rights to arise: the common debtor rule
The loss or preclusion of Marshalling rights: herein of third party security holders. absolute disponees – and “covenants not to marshall”
PROPOSED PERSONAL PROPERTY SECURITY REFORM FOR AUSTRALIA
A User’s Guide to
Australian Secured Transactions Law Reform
For the Seminar “Round-up of Current Law”
Financial Services Committee (Perth) of the Business Law Section
Law Council of Australia
7:30 – 9:30 am, Friday, 9 November 2001, Central Park Theatrette, Perth
Ralph Simmonds, Dean and Professor of Law, Murdoch University
What Reform?
Talking about law reform to an audience of practising lawyers, before we have a bill, let alone before reform has been enacted, has the appearance of hubris of the rankest sort. Talking about secured transactions law reform looks even worse. After all, it has been talked about for a long time. And there are many who consider a sufficient case has not been made for it. I look at the matter another way. For me, the persistence of the discussion of the case for reform1 suggests there is ground for a concern that will not go away.
Now we have new draft legislation, for a Personal Property Security Act for Australia2. It might be enacted as uniform state law, or as federal law under a suitable new referral of legislative power. It addresses the case for reform in the following ways:
(1) A Uniformity Principle: The draft legislation seeks to bring greater order to the chaos of secured transactions law that we have at present, by providing for modernised, simplified, largely uniform and much easier to apply rules for the creation, enforcement and priority position of consensual security interests. It would replace both the current legislative jungle of state3 and federal law4 and the varied and difficult to apply common law5. It does involve bringing under the legislation a number of transactions that our law largely – but not entirely – does not deal with as secured transactions. The major example in practice will be the retention of title transactions of the Romalpa sort6. But there are compensations.
(2) A Flexibility Principle:The draft legislation seeks to make the life of the drafter of secured transactions easier by making the enforceable effect of commercially realistic arrangements easier to predict. This should be of special interest to lawyers left uncertain about the effect of fixed and floating charge arrangements over such things as book debts7 and attempts to extend retention of title clauses into manufactured products and proceeds8.
Further, the draft legislation is firmly based on a successful model that has already been translated into the Personal Property Security Act 1999 (NZ)9. This model is the Canadian (provincial) Personal Property Security legislation, and particularly the latest forms of that legislation10. This model in turn gives direct access to a sizeable body of case-law and commentary, including case-law and commentary on forms of Article 9 of the Uniform Commercial Code in the US, on which the Canadian Acts themselves are based11. This North American model is influencing international conventions on secured financing law12.
What Would the Reform Look Like?
I will take the draft Australian legislation, and the corresponding provisions of the Personal Property Security Acts of Saskatchewan and of New Zealand, to give the flavour of this sort of law.
Scope of the Legislation
It applies to any transaction that in substance, regardless of its form, creates a security interest13. Such transactions are called security agreements. This includes such things as conditional sale agreements. There is also an extension to assignments of book debts, but only for the purposes of the priority rules.
Effect of security agreements
Generally, they are to take effect according to their terms, subject to contrary specified law14. Thus, the old precedents may continue to be used. But major issues in drafting are specifically addressed. Thus, security interests extend to identifiable proceeds without the need for a fiduciary relationship15. Security interests may extend to after-acquired property without specific appropriation by the debtor16, and they may secure further advances17, if the security agreement so provides. Security interests in raw materials that lose their identity upon incorporation into a product or mass continue in the product or mass in the same proportions as the obligations they secure18.
Enforcement of security agreements
The secured creditor has the rights and remedies provided for in the legislation as well as any provided for in the security agreement. Those rights and remedies are principally to take possession as the collateral permits19; to sell in a commercially reasonable manner20; or to foreclose21. There are, however, provisions to protect the interests of the debtor in respect of any equity it has left in the collateral22.
Priority of security interests under security agreements:
The base priority rule as between competing secured parties is the first to register or take possession, which applies unless another priority rule governs23. A security interest in any collateral may be registered24, and registration is by the filing of a notice of the security interest in a single computerised registry25. There are special priority rules for such matters as purchase money security interests, to protect such as the supplier of goods on Romalpa terms, but generally speaking only on the basis that such supplier has registered26. Security interests that have been registered are good against purchasers of the collateral subject to exceptions such as for purchasers of inventory27. The location or character of title, whether legal or equitable, is irrelevant to any of these rules. So too is notice. And in any event registration is not notice28.
Notes to Appendix
1 Even judicially: see my matching paper to this one, “A User’s Guide to Associated Alloys Pty Ltd v Metropolitan Engineering and Fabrications Pty Ltd” (2001).
2 This is the product ot the work of the Banking and Financial Services Law Association Personal Property Securities Committee, of which I am a member. Copies of it should become widely available shortly; also, we expect it to be the subject of a national conference in the first quarter of 2002.
3 Including the Bills of Sale Act 1899 (WA), the Hire Purchase Act 1957 (WA), and the Chattel Securities Act 1987 (WA).
4 At least Corporations Act 2001 (Cth) Part 2K, and probably also a range of other federal statutes, including the Air Navigation Act 1920 (Cth), the Designs Act 1906 (Cth), the Life Insurance Act 1995 (Cth), the Patents Act 1990, and the Trade Marks Act 1995. However, mortgages under the Shipping Registration Act 1981 (Cth) will not be covered.
5 Most notably, the rule in Dearle v Hall, which appears to have few friends.
6 For their regulation as a secured transaction notwithstanding their form, see the Chattel Securities Act 1987 (WA), and, when they are not used as a inventory financing devices, the Hire Purchase Act 1957 (WA). For similar suggestions in a common law context (none yet acted on), see Esanda Finance Corp Ltd v Plessnig [1989] HCA 7; (1989) 63 ALJR 238, at 246 per Brennan J (on the protection of something akin to an equity of redemption).
7 Thus, it is unclear whether or not the common law in Australia is as stated for common law New Zealand in Agnew v The Commissioner of Inland Revenue, decided 5 June 2001, http://www.privy-council.org.uk/files/other/agnew jud-rtf.rtf (PC NZ). See on this Nash, L and Collier, B “Fixed Charges over Book Debts after Agnew v Commissioner of Inland Revenue” (2001) 9 Insolvency Law Journal 116.
8 On those difficulties, see the paper in note 1 above.
9 Accessible at http://www.knowledge-basket.co.nz/ (accessed 7 November 2001): click on Databases, then on GP Legislation (not yet in force).
10 In particular, the Personal Property Security Act RSBC 1996, C 359 as amended, accessible at http://www.qp.gov.bc.ca/statreg/stat/P/96359_01.htm (accessed 7 November 2001); the Personal Property Security Act S.S. Ch P-6.2 (Saskatechewan) as amended, accessible at http://www.qp.gov.sk.ca/publications/index.cfm?fuseaction=details&c=1885&id=2 (accessed 7 November 2001); and the Personal Propety Security Act S.N.B. Ch P-7.1 (New Brunswick) as amended, accessible at http://www.gov.nb.ca/acts/acts/p-07-1.htm (accessed 7 November 2001).
11 For the principal source on Canadian law, see McLaren, R, Secured Transactions In Personal Property In Canada, 2nd ed, looseleaf (Toronto : Carswell, 1989 -).
12 See Cuming, R, “"Hot Issues" in the Development of the (Draft) Convention on International Interests in Mobile Equipment and the (Draft) Aircraft Equipment Protocol” (2000) 34 International Lawyer 1093.
13 Draft Aust. PPSA, note 2 above, s 8; Sask PPSA, note 10 above, s 3; and NZPPSA, note 9, s 17.
14 Draft Aust. PPSA, note 2 above, s 14; Sask PPSA, note 10 above, s 9 (1); and NZPPSA, note 9, s 35. There are some differences in the degree of specification here.
15 Draft Aust. PPSA, note 2 above, s 33; Sask PPSA, note 10 above, s 28; and NZPPSA, note 9, s 45.
16 Draft Aust. PPSA, note 2 above, s 18; Sask PPSA, note 10 above, s 13; and NZPPSA, note 9, ss 43, 44.
17 Draft Aust. PPSA, note 2 above, s 19; Sask. PPSA, note 10 above, s 14; and NZPPSA, note 9, ss 71 and 72.
18 Draft Aust. PPSA, note 2 above, s 45; Sask PPSA, note 10 above, s 39; and NZPPSA, note 9, ss 82 and 85.
19 See Draft Aust. PPSA, note 2 above, s 63; Sask PPSA, note 10 above, s 58; and NZPPSA, note 9, s 109.
20 Draft Aust. PPSA, note 2 above, s 64 read with s 70; Sask PPSA, note 10 above, s 58; and NZPPSA, note 9, s 109. There is some variation in the language here, and there are notice provisions and the like.
21 Draft Aust. PPSA, note 2 above, s 66; Sask PPSA, note 10 above, s 61; and NZPPSA, note 9, s 120. There are provisions for notice of course to permit other parties to intervene.
22 Draft Aust. PPSA, note 2 above, s 65; Sask PPSA, note 10 above, s 60; and NZPPSA, note 9, s 117.
23 Draft Aust. PPSA, note 2 above, s 40; Sask PPSA, note 10 above, s 35; and NZPPSA, note 9, s 66.
24 See Draft Aust. PPSA, note 2 above, s 30; Sask PPSA, note 10 above, s 25; and NZPPSA, note 9, s 141.
25 Draft Aust. PPSA, note 2 above, s 49; Sask PPSA, note 10 above, s 43; and NZPPSA, note 9, s 142.
26 Draft Aust. PPSA, note 2 above, s 39; Sask PPSA, note 10 above, s 34; and NZPPSA, note 9, ss 73 and 74.
27 Draft Aust. PPSA, note 2 above, s 35; Sask PPSA, note 10 above, ss 20 and 30; and NZPPSA, note 9, ss 52 and 53.
28 Draft Aust. PPSA, note 2 above, s 53; Sask PPSA, note 10 above, s 47; and NZPPSA, note 9, s 20.
[1] I capitalise the noun, and related concepts.
[2] I will the language of security interest interchangeably with securities. I tend to find security interest more illuminating, however, particularly in the area of Marshalling. That is because the topic concerns real security rather than personal security, for the most part: see Sykes, Edward I and Walker, Sally, Law of Securities, 5th ed (Sydney: Law Book Co, 1993), Chapter 1.
[3] Texts on equity do indeed devote space to Marshalling. The doctrine is not restricted to the context of securities – it also extends to the administration of estates. See eg Dal Pont, GE and Chalmers, DRC, Equity and Trusts in Australia and New Zealand, 2nd ed (Sydney: LBC, 2000), 379 - 384.
[4] As one recent such collection does: see McDonald, Barbara, “Marshalling”, in Parkinson, P ed, The Principles of Equity (Sydney: LBC, 1996), Chapter 16.
[5] See the Table of Cases in the text referred to in note 8, infra.
[6] See the coverage in Sykes & Walker, supra note 2, at 182 - 185; Tyler, ELG et al, Fisher & Lightwood’s Law of Mortgage, Australian ed (Sydney: Butterworths, 1995), at 655 - 660.
[7] As will be discussed below.
[8] See Ali, Paul A U, Marshalling of Securities (Oxford: Clarendon Press, 1999).
[9] As well as providing a valuable bibliography listing what appear to be the major writings on the subject.
[10] Although it has to be admitted that it does not seem to figure largely in any of the undergraduate courses on equity or secured transactions that I am aware of.
[11] There is a draft bill to make such a change, presently under consideration in this country. See Simmonds, Ralph, “A User’s Guide to Australian Secured Transactions Law Reform” (2001), a copy of which I attach as an appendix to this paper. On marshalling under the Canadian PPSAs, see MacDougall, Bruce, “Marshalling and the Personal Property Security Acts: Doing unto Others …” (1994) 28 UBC Law Rev 91..
[12] In this fact pattern, and all of the others I use, I try to remain consistent as to the asset over which a creditor is asserting a marshalling right, and the asset over which the creditor has security.
[13] Or DR1 may have more than two: it does not matter, provided that the senior security interest subsists in all of those for which Marshalling rights are to be asserted and the other conditions in the example are met.
[14] Ali, supra note 8, para 1.01.
[15] One might ask, why would SP1 enforce on asset A first? Most obviously, it might be because of the comparative ease in realising that asset’s value – consider if asset A was a parcel of marketable shares and asset B was rural real estate. There is some support for a version of marshalling that does involve restraint, however. See below.
[16] See also Ali, supra note 8, paras 3.24, 3.25.
[17] See Ali, supra note 8, paras 7.14 (read with para 7.13n 23) and 11.57n 79. The language in that text sometimes obscures the point, however: see eg para 11.23n 39.
[18] Ali, supra note 8, para 11.02 (footnotes citing to authority omitted). As his text indicates, in the United States a version of marshalling by the trustee in bankruptcy on behalf of unsecured creditors is permitted; however, this has no counterpart in Australia law. See id Chapter 10 discussing and criticising the US position.
[19] It does not matter when the SP3 interest was granted relative to the grant of the security interest to SP2. This flows from the nature of the marshalling permitted here. See following text.
[20] See Ali, supra note 8, paras 11.18 to 11.40 (see especially para 11.27, on limits to this form of Marshalling). It follows that once SP2 has taken its rateable portion, and SP3’s claim has been satisfied, SP2’s marshalling rights for the balance of the senior security apply in respect of any residue: id, para 11.24.
[21] Ali, supra note 8, paras 11.32, 11.33. Thus it is evident that it does not matter whether or not SP3’s interest arose before or after SP2’s, nor if subsequently whether or not SP3 took with notice of SP2. Note that SP3 is still, after Marshalling by Apportionment, better off than it would have been if SP1 had realised first on asset B.
[22] See Ali, supra note 8, Chapter 2, at paras 2.02 – 2.03 (as late as mid-nineteenth century England, near unanimous support for this view).
[23] See Ali, supra note 8, paras 3.35 to 3.37. However, if the senior creditor manages to realise before intervention, then the US authorities leave the junior creditor to a post-realisation model of Marshalling: id at para 3.36 (characterising the position overall as a “hybrid” model of Marshalling).
[24] See Smit Tak International Zeelspin Bergingsbedrijf v Selco Salvage Ltd [1988] LJ Rep 398; and Re Bank of Credit and Commerce International SA (No 8) [1998] 1 BCLC 68.
[25] See Commonwealth Trading Bank v Colonial Mutual Life [1970] TASStRp 9; (1970) 26 FLR 338 (Tas SC).
[26] See Ali, supra note 8, Chapter 3, discussing the matter.
[27] Id.
[28] Ali, supra note 8 paras 3.23 and 3.24; and 5.53 and 7.04. See also the authority he cites, Westpac Banking Corporation v Daydream Island Pty Limited [1985] 2 Qd 330, at 332.
[29] However, it would seem that when the asset B (in my example) has been realised and the proceeds distributed among the general creditors of DR, or when the senior security has been formally discharged, marshalling rights cease: see McDonald, supra note 6, at 566. However, it is “arguable” that, even then, in some circumstances at least, the senior creditor may be subject to a fiduciary obligation to the junior creditor, at least if the former was aware of the latter at the relevant time: Laws of Australia, EQUITY 15.3 ‘Contribution, subrogation and marshalling’ Chapter 4 ‘Marshalling’ [28] (Update 62, 1997) (source of quotation; citing authority).
[30] Ali, supra note 8, para 11.14.
[31] See Ali, supra note 8, para 3.23n
[31] (citing authority).
[32] Ali, supra note 8, para 11.13n 21.
[33] Ali, supra note 8, para 11.13 (footnotes omitted). The best illustration of the point that Marshalling rights are not a “mere equity” is in respect of the debtor granting security over asset B after the rights arise, that is, after the senior creditor has realised on asset A. Provided that the subsequent security was granted subject to the senior interest, it seems, then the subsequent secured party is liable to marshalling by apportionment whether or not it has notice of the junior creditor: Ali, supra note 8, para 11.26n 42. However, it would seem unlikely that that subsequent party would agree or be taken to have agreed to take the asset subject to a senior security whose debt has been discharged, as that debt must have been for Marshalling rights to have arisen: see Ali, supra note 8, para 11.45n 61.
[34] See Ali, supra note 8, para 4.20n 15; and eg Sarge Pty Ltd v Cazihaven Homes Pty Ltd (1996)
[34] NSWLR 658, 662, per Young J.
[35] See Ali, supra note 8, paras 4.20 to 4.33.
[36] See Ali, supra note 8, para 4.39 for those terms and citation of authorities.
[37] See Ali, supra note 8, paras 4.39 to 4.54.
[38] See Ali, supra note 8, para 5.02.
[39] See Ali, supra note 8, paras 5.22 to 5.27 (refutation).
[40] See Ali, supra note 8, paras 5.28 and 5.44 to 5.48.
[41] See Ali, supra note 8, paras 5.37 to 5.43 and 5.48 (refutation, including of claim that Marshalling by Apportionment is a form of contribution).
[42] See Ali, supra note 8, para 5.49.
[43] See Ali, supra note 8 paras 5.50 to 5.53.
[44] From Ali, supra note 8, para 7.02: the emergence of these requirements is chronicled at 2.30 to 2.40.
[45] See Ali, supra note 8, paras 9.12, 9.13 and 9.15 to 9.24 (discussing the contrary authority of Webb v Smith (1885) 30 Ch D 192, which would restrict Marshalling to securities of the first two types).
[46] See Ali, supra note 8, paras 9.26 to 9.34 (discussing the contrary authority of Smit Tak International Zeelspin Bergingsbedrijf v Selco Salvage Ltd [1988] LJ Rep 398).
[47] See Ali, supra note 8, para 9.37.
[48] See Esanda Finance Corp Ltd v Plessnig [1989] HCA 7; (1989) 63 ALJR 238, at 246 per Brennan J (on the protection of something akin to an equity of redemption). Howevdr, the most recent extended discussion of title retention security in the High Court is as I read it antagonistic to any re-characterisation of such security along such lines: see Associated Alloys Pty Ltd v Metropolitan Engineering and Fabrications Pty Ltd (2000) 171 ALR 568; [2000] HCA 25 (11 May 2000, HC, FC). Elsewhere I have discussed this case in such terms: see Simmonds, Ralph, “A User’s Guide to Associated Alloys Pty Ltd v Metropolitan Engineering and Fabrications Pty Ltd, for the Seminar “Round-up of Current Law”, Financial Services Committee (Perth) of the Business Law Section of the Law Council of Australia, 9 November 2001, Perth.
[49] Most obviously, under the Consumer Credit Codes: see Duggan, A and Lanyon, E, Consumer credit law (Sydney: Butterworths, 1999), 230 – 243 (some title retention devices treated as mortgages), read with Chapter 10 (enforcement).
[50] See the Appendix to this paper on such reform.
[51] See Ali, supra note 8, paras 8.05 to 8.13.
[52] This exception may extend beyond suretyship to any situation where the junior debtor’s creditor can “shift the senior debt to the debtor”: Ali, supra note 8, para 8.07 (instancing the overpaying co-debtor with a right of contribution).
[53] See Ali, supra note 8, para 8.11.
[54] See Ali, supra note 8, paras 8.01n 1 (noting that this is not recognised as an exception by the authorities, but functions as one) and paras 11.50 to 11.
[54] (noting also a line of authority suggesting that only notice of the junior creditor by the transferee permits the former to marshall; but showing the difficulty with that view).
[55] See Ali, supra note 8, paras 7.27 to 7.30.
[56] But see Ali, supra note 8, para 7.31n 42 (indicating it is “uncertain” whether or not marshalling would be allowed in such a case).
[57] For that matter, as has been seen, Marshalling rights are vulnerable to the possibility that the debtor before those rights arise has entered into an arrangement with the senior creditor binding it to resort first to its senior security over the asset over which the junior creditor has security. What is of concern in this first portion of this section of the presentation is those situations where third party transactions can have an equivalent effect. I return to inter-parties preclusion situations at the end.
[58] See Ali, supra note 8, para 11.45n 61 in fine (on transfers or dispositions).
[59] See Ali, supra note 8, para 11.43.
[60] See Ali, supra note 8, para 11.44.
[61] See Ali, supra note 8, para 11.44n 60.
[62] Such as where the senior security is equitable and the third party is a purchaser of the legal title for value without notice. On the relevance of the agreement of the senior creditor to a transfer free of its interest, see Ali, supra note 8, para 11.43n 58.
[63] See Ali, supra note 8, para 11.54.
[64] See Ali, supra note 8, paras 12.03 to 12.05, and 12.07 to 12.08 (the quotation is from para 12.08).
[65] As Ali, supra note 8, para 12.06 points out, it is hard to see what benefit the senior creditor gains from the covenant absent compensation for it by the debtor.
[66] See Ali, supra note 8, para 12.08n 7.
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