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FINANCIAL SERVICES AUTHORITY (Formerly SECURITIES INVESTMENTS BOARD a company limited by guarantee) v. SCANDEX CAPITAL MANAGEMENT (A Company incorporated under the laws of Denmark) and JEREMY BARTHOLOMEW-WHITE [1997] EWCA Civ 3006 (16th December, 1997)
IN
THE SUPREME COURT OF JUDICATURE
CHANI
97/1096/B
IN
THE COURT OF APPEAL (CIVIL DIVISION)
ON
APPEAL FROM THE CHANCERY DIVISION
(MR
JUSTICE CARNWATH
)
Royal
Courts of Justice
Strand
London
WC2
Tuesday
16 December 1997
B
e f o r e:
LORD
JUSTICE HOBHOUSE
LORD
JUSTICE MILLETT
LORD
JUSTICE OTTON
-
- - - - -
FINANCIAL
SERVICES AUTHORITY
(Formerly
THE SECURITIES INVESTMENTS BOARD
a
company limited by guarantee)
Plaintiff/Appellant
-
v -
1.
SCANDEX
CAPITAL MANAGEMENT
(A
Company incorporated under the laws of Denmark)
2.
JEREMY
BARTHOLOMEW-WHITE
Defendant/Respondent
-
- - - - -
CHANI
97/1480/B
FINANCIAL
SERVICES AUTHORITY
(Formerly
THE SECURITIES INVESTMENTS BOARD
a
company limited by guarantee)
Plaintiff/Respondent
-v-
1.
SCANDEX
CAPITAL MANAGEMENT
(A
company incorporated under the laws of Denmark)
2.
JEREMY
BARTHOLOMEW-WHITE
Defendant/Appellant
-
- - - -
(Transcript
of the Handed-down Judgment of
Smith
Bernal Reporting Limited, 180 Fleet Street,
London
EC4A 2HD
Tel:
0171 421 4040
Official
Shorthand Writers to the Court)
-
- - - - -
MR
A STEINFELD QC
and
MR
C HARRISON
(Instructed by Messrs Edwin Coe, London, EC2A 3TH) appeared on behalf of the
Plaintiff.
MR
P GRIFFITHS
(Instructed by Messrs Stephenson Harwood, London EC4A 8SH) appeared on behalf
of the Second Defendant.
-
- - - - -
J
U D G M E N T
(As
approved by the Court
)
-
- - - - -
©Crown
Copyright
JUDGMENT
LORD
JUSTICE HOBHOUSE: For the reasons given in the judgment handed down, the
appeal will be allowed and the cross-appeal will be dismissed. Subject to
submissions of counsel the case will be remitted to the Chancery Division for
further consideration.
LORD
JUSTICE MILLETT: This appeal and cross-appeal raise three short and discrete
points under the Financial Services Act 1986 (“FSA”). The first is
whether a belief on the part of a person concerned in carrying on by a company
of an investment business in the United Kingdom that the company is authorised
under the law of a country which is a member of the EEA to carry on investment
business that country affords him an arguable defence to an allegation that he
has been knowingly concerned in a contravention of Section 3 of the FSA. The
second is whether the Court has jurisdiction to make an order for interim
payment against such a person. The third, which is only pursued by Mr
Bartholomew-White if the first is decided in his favour, is whether the Judge
was precluded by RSC Order 62 Rule 8(3) from making an order for immediate
taxation and payment of the Plaintiffs' costs.
The
Proceedings
On
19th December 1996 the Appellant The Securities and Investment Board
(“SIB”), now the Financial Services Authority, applied for summary
judgment against the Respondent Mr Bartholomew-White and the First Defendant
Scandex Capital Management A/S (“Scandex”) for relief arising out
of alleged breaches of the FSA. Scandex is in liquidation, and its liquidator
has consented to judgment on the principal issues raised by SIB’s claim.
On 2nd July 1997, after two hearings each leading to a considered judgment,
Carnwath J ruled that the Respondent had no arguable defence to certain of
SIB’s claims and granted consequential declarations. These included a
declaration that he had been knowingly concerned in the contravention by
Scandex of Section 3 of the FSA in respect of each transaction of investment
business entered into by Scandex in the United Kingdom. He granted ancillary
relief, including orders for accounts and inquiries, but dismissed SIB’s
application for an order for interim payment by the Respondent of the sum of
£627,522.83, holding that he had no jurisdiction to make an order for
interim payment. But for what he perceived to be a want of jurisdiction, the
Judge would have ordered the Respondent to pay into Court on account of his
liabilities the sum of £470,642.12. That sum represented 75% of the
amount which the Judge accepted was shown by the evidence to be the
prima
facie
amount
of the Respondent's liabilities. He ordered the Respondent to pay the
SIB’s costs, such costs to be taxed and paid forthwith.
The
SIB appeals from the Judge’s refusal to make an order for interim
payment. The Respondent cross-appeals from the Judge’s ruling that he
had no arguable defence to the charge that he was knowingly concerned in the
contraventions in question, and from the order for immediate taxation and
payment of SIB’s costs.
It
is appropriate to deal with the cross-appeal first, as this is concerned with
liability.
The
Facts
For
present purposes the facts lie in a very small compass and can be briefly
recounted as follows. Scandex was incorporated under Danish law on 1st
September 1995. The Respondent was a shareholder of Scandex and its managing
director.
Prior
to 1st January 1996 there was no legislation in Denmark which regulated the
carrying on of investment business in that country. In December 1995 the
Danish legislature implemented the provisions of the European Council Directive
on investment services (93/22/EEC) by enacting for the first time legislation
to regulate the carrying on of investment business in Denmark. The legislation
contained requirements for authorization and provision for investor protection,
and came into force on 1st January 1996. As from that date it was unlawful for
a person to carry on investment business in Denmark without having obtained
prior authorization from the Danish financial services regulator (Finans).
Under transitional provisions, however, persons who were already carrying on
investment business prior to 1st January 1996 and who applied for authorization
before 30th June 1996 could continue to offer those services without prior
authorization until their application was determined or 1st January 1997,
whichever was the earlier.
On
28th December 1995 Scandex submitted an application to Finans for authorization
to carry on investment business in Denmark. There is some doubt on the
evidence whether in fact Scandex began to trade before 1st January 1996 so as
to be able to take advantage of the transitional provisions of the Danish
legislation, but the Judge appears to have accepted that there was sufficient
evidence that this was the case for the purpose of an application for summary
judgment.
By
the beginning of April 1996 at the latest Scandex was sending letters in
standard form signed by or on behalf of the Respondent offering investment
services to investors in the United Kingdom. Scandex had not and never has
applied for authorization under the FSA to carry on investment business in
England. Instead it relied on its entitlement to carry on such business
lawfully in Denmark until the determination of its application to Finans. On
26th April 1996 SIB wrote to the Respondent and warned him that Scandex was
carrying on business in contravention of the FSA. Despite this Scandex
continued to offer investment services in the United Kingdom. Finans
eventually refused authorization on 30th September 1996.
In
the proceedings SIB allege that Scandex carried on investment business in the
United Kingdom in contravention of Section 3 of the FSA, and that the
Respondent was "knowingly concerned in the contravention" within the meaning of
Section 6(2) of the FSA. In the course of his first judgment given on 26th
March 1997 the Judge held that it was necessary to show that the Respondent was
"aware
not only of the facts giving rise to the contravention, but also that it
involved such contravention."
This
led him to hold that, while there was no doubt that the Respondent was aware of
the position after he was put on notice by SIB's letter of 26th April 1996,
there was a triable issue whether he had the requisite knowledge before then.
In
his second judgment the Judge reconsidered the matter and came to the
conclusion that the Respondent was at all times fully aware of all the facts
which made the carrying on of investment business in the United Kingdom a
contravention of the FSA, that he was to be taken to know the law, and that any
mistake which he may have had as to the effect in England of Scandex' ability
to carry on investment business lawfully in Denmark under Danish law was a
mistake of English law and was as such irrelevant. He accordingly varied the
relevant declaration so as to extend it to the period before 26th April 1996 as
well as after it.
The
Respondent appeals from that decision. He submits that he has raised a triable
issue, viz. whether he had an honest belief that Scandex was at the material
time authorised to carry on investment business in Denmark and so exempt from
the requirement to obtain similar authorization in England. If so, he submits,
he did not know that the Danish transitional provisions did not have the effect
of authorising Scandex to carry on investment business in the United Kingdom.
This, it is submitted, was a mistake of Danish law and not English law, and as
such was a mistake of fact and not one which should be dismissed out of hand on
the ground that "everyone is bound to know the law."
The
United Kingdom legislation
Section
3 of the FSA provides that no person shall carry on investment business in the
United Kingdom unless he is an authorised person under Chapter III or an
exempted person under Chapter IV of the Act. The Respondent does not contend
that Scandex was an exempted person under Chapter IV or that he ever thought
that it was. The question at issue is concerned with the effect of his alleged
belief that it was an authorised person under Chapter III.
Section
6(2) gives the Court power, if satisfied on an application by the Secretary of
State (now SIB) that a person has entered into any transaction in contravention
of Section 3, to order that person
and
any person who appears to the Court to have been knowingly concerned in the
contravention
to
take such steps as the Court may direct for restoring the parties to the
position in which they were before the transaction was entered into.
It
is to be observed that it is not sufficient for a person to be subjected to
liability under Section 6(2) that he was knowingly concerned in the carrying on
of the business; he must appear to have been knowingly concerned
in
the contravention
.
The contravention consists of (i) the carrying on of an investment business
(ii) in the United Kingdom (iii) by a person who is not an authorised person
under Chapter III of the FSA. Before the Respondent can be made liable under
Section 6(2), therefore, he must appear to have possessed the requisite
knowledge of all three ingredients of the contravention. It is not disputed
that the Respondent was knowingly concerned in the carrying on by Scandex of an
investment business in the United Kingdom. The sole question is whether he has
an arguable case for claiming that he did not know that it was not an
authorised person.
There
are several routes by which a person may become an authorised person within the
meaning of Section 3 of the FSA. The Respondent relies on two of them. One is
if the person in question is within the definition of an authorised person in
Section 31, which is contained in Part III of the FSA. The other is if the
person is a “European investment firm” within the meaning of the
Investment Services Regulations 1995 SI 1995/3275 (“the 1995
Regulations”).
So
far as material, Section 31 of the FSA provides as follows:
"31.
Authorization
in other member State
(1) A
person carrying on investment business in the United Kingdom is an authorised
person if -
(a) he
is established in a member State other than the United Kingdom;
(b) the
law of that State recognises him as a national of that or another member State;
and
(c) he
is for the time being authorised under that law to carry on investment business
or investment business of any particular kind.
............
(3) This
section applies to a person only if the provisions of the law under which he is
authorised to carry on the investment business in question -
(a) afford
to investors in the United Kingdom protection, in relation to his carrying on
of that business, which is at least equivalent to that provided for them by the
provisions of this Chapter relating to members of recognised self-regulating
organisations or to persons authorised by the Secretary of State; or
(b) satisfy
the conditions laid down by a Community instrument for the co-ordination or
approximation of the laws, regulations or administrative provisions of member
States relating to the carrying on of investment business or investment
business of the relevant kind.
..............
(5) This
section shall not apply to a person by virtue of paragraph (b) of subsection
(3) above unless the authority by which he is authorised to carry on the
investment business in question certifies that he is authorised to do so under
a law which complies with the requirements of that paragraph."
The
1995 Regulations came into force on 1st January 1996. So far as material
Regulation 3 defines the expressions "European investment firm" and
“quasi-European investment firm” as follows:
“(1)
An
investment firm is a European investment firm for the purposes of these
regulations if -
(a) it
is incorporated in or formed under the law of another EEA State;
(b) its
head office is in that State;
(c) it
is for the time being...authorised to act as an investment firm by a relevant
supervisory authority in that State; and
(d) [in
the case of an investment firm which is not a European authorised institution
and was not on the commencement date a European subsidiary] the requirements of
paragraph 1 of Schedule 3 to these Regulations have been complied with in
relation to its provision of a service....
(2) In
these Regulations “quasi-European investment firm” means an
investment firm other than a European authorised institution -
(a) which
is not a European investment firm; but
(b) which
would be such an investment firm if the requirements of paragraph 1 of Schedule
3 to these Regulations had been complied with in relation to its provision of a
service...."
Regulation
5 provides that nothing in Sections 3 and 4 of the FSA shall prevent a European
investment firm from providing in the United Kingdom any listed service (which
includes an investment service) which it is authorised to provide in its home
state. Such a firm is, however, subject to its own particular prohibition
contained in Regulation 6. This provides that a European investment firm shall
not (
inter
alia
)
provide any listed service in the United Kingdom unless the requirements of
paragraph 1 of Schedule 3 to the Regulations have been complied with in
relation to its provision of the service. That paragraph requires (i) the firm
to have sent to “the relevant supervisory authority in its home
state” a notice specifying its intention to provide a particular listed
service in the United Kingdom and (ii) SIB to have received from that
supervisory authority a notice certifying that the firm is an investment firm
which is for the time being authorised to act as such a firm by the authority
and containing the information stated in the firm’s notice. By
Regulation 24 a European investment firm or a quasi-European investment firm is
excluded from falling within Section 31 of the Act as regards
“home-regulated investment business”, which is defined to mean
business which its (home) authorization authorises it to provide.
The
effect of these convoluted provisions is twofold. First, they disapply the
provisions of Section 3 of the FSA in the case of a European investment firm
but subject such a firm to Regulation 6, which prohibits it from carrying on
investment business in the United Kingdom unless the requirements of paragraph
1 of Schedule 3 to the Regulations have been complied with. This has the
effect of imposing further requirements not found in Section 31 of the FSA
before the firm can lawfully carry on investment business in the United
Kingdom, and (if I have understood the Regulations correctly) is necessary
because Regulation 3(1)(d) contains exceptions with the result that some bodies
qualify as European investment firms without having complied with these further
requirements. Secondly, they prevent a quasi-European investment firm from
claiming to be an authorised person pursuant to Section 31 of the FSA. This is
necessary in order to prevent such a firm from becoming an authorised person
under Section 31 by obtaining authorization in its home state before it has
complied with the additional requirements imposed by paragraph 1 of Schedule 3
to the 1995 Regulations.
Meaning
of “authorised” in Section 31(1)(c)
It
is obvious that the word “authorised” in Section 31(1)(c) does not
mean merely “entitled”. It cannot sensibly be thought to have been
the policy of Parliament to allow anyone to carry on an investment business in
the United Kingdom without authorization provided only that he is carrying on
such business also without authorization in an unregulated jurisdiction. There
are several indications in Section 31 itself that the word
“authorised” in Section 31(1)(c) means being in possession of a
specific authorization granted by the appropriate supervisory body:
(1).
Subsection (3) refers to “the law under which he is authorised to carry
on the business in question". This indicates a positive authorization to carry
on a particular business and not merely a general freedom to undertake any
activities which are not actually prohibited.
(2).
That law must afford to investors in the United Kingdom protection which is at
least equivalent to that provided for them by the provisions of Chapter III of
the FSA. Chapter III restricts the ability to qualify as an “authorised
person” (apart from a few special cases) to members of recognised
self-regulating organisations and professional bodies and persons holding an
authorization from the SIB. This subjects persons authorised to carry on
investment business in the United Kingdom to regulation and disciplinary
procedures as well as to vetting processes to ensure that they are fit and
proper persons to carry on such a business. No equivalent protection can be
afforded in the absence of similar procedures and processes, which must
necessarily be applied on an individual basis.
(3).
Section 31(1)(b) cannot be satisfied unless the condition expressed in Section
31(5) is fulfilled, and this requires a certificate to be provided by
“the authority by which he is authorised to carry on the investment
business in question.”
It
may be observed that the 1995 Regulations presuppose that a firm is not
authorised by Section 31 to carry on investment business in the United Kingdom
merely by virtue of its ability lawfully to carry on such a business in another
member state. There would be no point in disapplying Section 31 in respect of a
quasi-European investment firm, that is to say a firm which has obtained
authorization to carry on an investment business in its home state but has not
yet complied with the requirements of paragraph 1 of Schedule 3 to the
Regulations, if the Section applied to a firm which was not even a
quasi-European investment firm because it had applied for but not yet obtained
such authorization.
The
effect of the United Kingdom legislation
Denmark
is a member state within the meaning of Section 31 of the FSA. Prior to 1st
January 1996 it was lawful under Danish law for any person to carry on
investment business in Denmark without authorization. But as I have explained
this did not make it “an authorised person” within the meaning of
Section 31 of the FSA.
On
28th December 1995 Scandex submitted an application to Finans for authorization
to carry on investment business in Denmark. This enabled it to take advantage
of the transitional provisions under Danish law which entitled it to continue
to carry on investment business in Denmark after 1st January 1996 without
authorization pending the determination of its application. In the meantime,
however, it was not a European investment firm or a quasi-European investment
firm within the meaning of the 1995 Regulations because it was not yet
“authorised to act as an investment firm by the relevant supervisory
authority” in Denmark: see Regulation 3(1)(c). Accordingly Regulation 5
did not apply so as to disapply Section 3 of the FSA. Nor merely by making its
application for authorization did Scandex become “an authorised
person” within the meaning of Section 31 of the FSA.
Had
Finans granted authorization, then pending compliance with the requirements of
paragraph 1 of Schedule 3 to the 1995 Regulations, Scandex would have become a
quasi-European investment firm but not a European investment firm. As such,
Regulation 5 would still not have applied to disapply Section 3 of the FSA.
Scandex would have come within the definition of “authorised
person” in Section 31, but that Section would be disapplied by Regulation
24. Only when Finans granted authorization
and
the
requirements of paragraph 1 of Schedule 3 to the 1995 Regulations were complied
with would Scandex become a European investment firm and as such authorised (by
Regulation 5 of the 1995 Regulations) to carry on investment business in England.
The
Respondent's cross-appeal: “knowingly concerned”
In
his second judgment the Judge resiled from his earlier ruling that the
Respondent must be shown to have been aware not only of the facts giving rise
to the contravention but also that they involved such contravention. With the
benefit of the citation of fuller authority than he had previously enjoyed, he
followed the decision in
Burton
v Bevan
[1908] 2 Ch 240 at pp. 246-7, where the question was whether the defendant had
"knowingly contravened" a particular statutory provision.
In
that case Neville J said:
"I think that knowingly means with knowledge of the facts on which the
contravention depends. I think it is immaterial whether the director had
knowledge of the law or not. I think he is bound to know what the law is, and
the only question is, did he know the facts which made the act complained of a
contravention of the statute.”
As
the Judge pointed out, this follows from the principle that ignorance of the
law is no defence: see
Grant
v Borg
[1982] 2 All ER 257, 263
per
Lord
Bridge. The Respondent is to be judged on the facts as he believed them to be,
but on the law as it is.
The
Respondent has not challenged this ruling, but submits that, while ignorance of
English law is no excuse, ignorance of foreign law is. He has deposed that he
believed, on the basis of advice from Danish lawyers, that Scandex was
"authorised to transact investment business under transitional
regulations then in force"
and
that
"as far as Danish and European law was concerned we could trade
throughout the European Union".
If
this was a mistake, he submits, it was a mistake of Danish law, and therefore
to be treated as a mistake of fact.
The
difficulty with this argument is that the Respondent was at all times fully
aware of the position under Danish law. The Judge expressly found that he "had
a reasonably accurate understanding of the position under Danish law", and
there is no cross-appeal from that finding. He was also fully aware of the
relevant facts, viz:
(1)
Scandex had applied for but had not yet received authorization from Finans to
carry on investment business in Denmark; and
(2)
Pending the determination of its application, it was not unlawful for Scandex
to carry on an investment business in Denmark.
The
Respondent has deposed to the fact that he believed that Scandex was
"authorised" to carry on investment business in Denmark, but that is not an
accurate statement of what he knew to be the facts. The truth is that he knew
that Scandex was
not
authorised
by the relevant regulatory body to carry on such a business in Denmark, but was
entitled to carry it on without such authorization for the time being. Being
authorised and not needing to be authorised are two different things.
It
does not matter if the Respondent thought that there was no difference between
these two concepts in Danish law. If he made any mistake at all, it was that
he believed that,
under
English law
,
the fact that Scandex could lawfully carry on an investment business in Denmark
without the specific authorization of the Danish supervisory authority was
sufficient to authorise it to carry on a similar business in the United Kingdom
without the necessary authority under the FSA. That would be a mistake of
English law.
Counsel
for the Respondent submits that, for all the Respondent knew, the Danish
legislation provided that, pending the determination of its application, an
applicant for authorization should be deemed to be authorised to carry on
investment business in Denmark and that all the provisions relating to investor
protection should apply as fully as if he applicant were already authorised.
But this would make no difference. Whether a provision of a foreign law has the
effect of entitling a person to carry on business in the United Kingdom is a
matter of English law. If the Respondent thought that it was a matter of the
foreign law, that too was a mistake of English law.
To
correct the Respondent's mistaken impression, if indeed he had it, it would be
unnecessary to consider Danish law or consult Danish lawyers (though even a
cursory examination of the information supplied by Finans would be sufficient).
It would be enough to consider the provisions of Section 31 of the FSA and the
1995 Regulations. All the facts which took Scandex outside the definition of
“European investment firm” in the 1995 Regulations and prevented
Scandex from claiming to be an "authorised person" under Section 31 were known
to the Respondent. He has no arguable defence to a charge that he was
"knowingly concerned" in the contraventions in question. I would dismiss the
cross-appeal.
The
appeal: interim payment
The
Judge rightly held that the Court has no inherent jurisdiction to order a
payment on account: The Fuoshan Maru [1978] 2 All ER 254. Before him SIB
invoked Part 2 of RSC Order 29, implementing Section 32 of the Supreme Court
Act 1981, which confers power on the Court to order “interim
payment”. This is defined as a payment on account of the sum which a
defendant may be found “liable to pay to or for the benefit of a
plaintiff”: see Order 29 Rule 9.
The
Judge reluctantly accepted the Respondent’s submission that sums
recovered from him by SIB in these proceedings are not paid “to or for
the benefit of” SIB because they are payable to and enure for the benefit
of individual investors and not SIB. In my judgment this conclusion was
inescapable, but it is not the end of the story.
Before
us SIB invoked Section 6(2) of the FSA, which authorises the Court, if
satisfied that a person has been knowingly concerned in a contravention of
Section 3,
"to take such steps as the Court may direct for restoring the parties to
the position in which they were before the transaction was entered into."
As
will appear, the question is whether an order for an interim payment into Court
is such a step.
Section
6(2) was considered in
Securities
and Investment Board v Pantell (No. 2)
[1993] Ch. 256. The principal judgment was given by Scott LJ. He pointed out
that the discretion of the Court ("such steps as the Court may direct") is
conferred in very wide terms. The only limitation which could properly be put
on those words is that the purpose of the order must be "for restoring the
parties to the position in which they were before the transaction was entered
into." "The parties" means "all parties" and does not merely mean "the
investors". Accordingly, where (as in that case) investors have been induced
to purchase shares, any order for repayment to them must be conditional upon
their returning the shares. In the present case this particular problem does
not arise. The transactions were mainly foreign exchange transactions and
dealings in equities were margin transactions; in either case the investors who
have lost their money have nothing to show for it.
For
present purposes, the significant feature of Scott LJ's judgment is that he
emphasised that Section 6(2) is directed to the reversal of specific
transactions and does not contemplate orders made for the benefit of investors
generally. Accordingly, when considering the form of order which should be
made in that case, he said:
"A Section 6(2) order should be directed to individual transactions with
payment being directed to individual investors upon the individual investors
retransferring their Euramco shares or delivering up their Euramco share
certificates."
It
would clearly be inappropriate to make such an order in the present case even
as a final order once the accounts and inquiries which the Judge ordered have
been completed; and
a
fortiori
as
an interim order pending the taking of such accounts and inquiries. Quite
apart from the possibility that further claims may emerge, the Respondent has
indicated that he is unlikely to be able to satisfy any judgment in full. If
so, there will have to be a pro rata distribution to the investors, and this
can be achieved only by ordering payment to be made into Court in the first
instance.
Does
Section 6(2) authorise the Court to order an interim payment into Court? I do
not see why not. In
Pantell
Scott LJ was faced with a different problem. The persons liable to make
payment were solicitors and were likely to be able to meet the judgment in
full, either out of their own resources or from the proceeds of insurance. The
form of order which Scott LJ envisaged was suitable for the case before him.
It does not follow that it is suitable for every case or even for the great
majority of cases. Nor does it follow that it is the only kind of order which
the Court can make even after final judgment. Earlier in his judgment Scott LJ
had said
"... the only limitations on the type of order that can be made under Section
6(2) that are justified by the statutory language are that the order must be
intended to restore all parties to the transaction to their respective former
positions and that the steps directed by the order must be reasonably capable
of doing so."
I
see no reason why the steps in question must be such as effect immediate
restoration in full. The powers conferred on the Court are characterised by
their extreme flexibility. In my judgment, they include power to direct the
taking of steps which are preparatory to payment to investors, and it is
sufficient that they are steps towards the restoration of the parties to their
former position so far as possible.
I
am satisfied that they include power, after final determination of the
necessary accounts and inquiries, to order payment into Court or to a suitable
person (who could be an officer of SIB) appointed as receiver, so that a pro
rata distribution can be made to investors under the directions of the Court.
And if such an order can be made after final judgment when the necessary
accounts and inquiries have been completed, then an order for interim payment
can be made after interlocutory judgment and before the accounts and inquiries
have been taken. The only limitation is that all such orders must be by
reference to particular transactions, but so long as this is the case then in
my judgment every payment into Court with a view to its later distribution to
the parties to a transaction and every payment out of court to one or other of
such parties is a step for restoring them to the position in which they were
before the transaction was entered into.
In
my judgment, therefore, the Judge had power under Section 6(2) of the FSA to
make an order for interim payment into Court. He was not, however, asked to
make an order under the Section, and has not therefore considered the matters
relevant to the statutory discretion. Accordingly, I would allow the appeal,
and direct that the case be restored to the Judge to consider whether it is
appropriate to make such an order and if so on what terms.
Costs
This
point related to the costs order made in the court below. In view of our
decision on the main point raised by the cross-appeal, the 'knowingly
concerned' point, the cross-appeal on costs is not being pursued. Accordingly,
it too falls to be dismissed.
LORD
JUSTICE OTTON: I agree that the Appeal should be allowed and the Cross-Appeals
be dismissed and that the case should be restored to the Judge for
consideration of an Order for an interim payment into Court.
LORD
JUSTICE HOBHOUSE: I agree with the judgment of Millett LJ and that the
cross-appeal on the knowingly concerned point be dismissed and the appeal on
the interim payment point be allowed for the reasons he gives together with the
order he proposes. Mr Bartholomew-White was not operating under any material
mistake of fact. What he did was done intentionally and with an adequate
knowledge of the legal provisions in force in Denmark. On the evidence upon
which he relies, the only mistake he made concerned whether the position of
Scandex in Denmark gave it any authorisation to carry on investment business
within the United Kingdom. His knowing involvement in the contravention of s.3
of the Financial Services Act was made out.
In
view of this conclusion it is not necessary to say anything about the relevance
and effect of Chapter V of the Act and s.61 upon which we also heard argument.
I
also agree that there was in this case no power to make an order for interim
payment to the Plaintiffs under RSC O.29 r.9 or under any inherent jurisdiction
of the Court. (
The
Fuohsan Maru
[1978] 1 Lloyds 24). But, again in agreement with Millett LJ, I consider that
the Court has the jurisdiction to make an order against Mr Bartholomew-White
under s.6(2) of the Act. The wording of s.6(2) of the Act is widely expressed -
"If ... the court is satisfied that a person has entered into a
transaction in contravention of s.3 above, the court may order that person or
any person knowingly concerned in the contravention to take such steps as the
court may direct for restoring the parties to the position in which they were
before the transaction was entered into."
Provided
that they are for the purpose of restoring the parties to the relevant
transaction to their previous position, the court is at liberty to direct such
steps as it considers will assist to achieve that result. The use of the
phrase "such steps as the court may direct for ..." indicates that the court
may take it in stages; a number of steps may be required to achieve the
restitution.
The
right of restitution which is referred to is that included in s.5: a party who
enters into an agreement with an unauthorised person is entitled to recover any
money or other property paid or transferred by him under the agreement. This
is a right specific to a particular transaction and to the person who has
entered into the relevant agreement with the unauthorised person. It is not a
right which is given to the Secretary of State or the Securities and Investment
Board. S.6(2) extends the obligation to make restitution to the person
knowingly concerned as a quasi secondary obligor and gives to the Secretary of
State and the Securities and Investment Board the right to ask the court to
order him to take such steps as it directs to bring about the restitution. The
wording of s.6(2) also makes it clear that the restitution must be mutual.
These
features of s.6(2) were confirmed and stressed by the Vice-Chancellor and the
Court of Appeal in
SIB
v Pantell
[1993] Ch 256. But it was submitted before us that the judgments in that case
went further and precluded any order which fell short of effecting a complete
restitution as between the parties to the relevant transaction. I do not
agree. There was a particular difficulty in that case that the relevant
transactions involved the purchase by members of the public of securities which
had been delivered to them. It did not follow that all the members of the
public would necessarily want to rescind the relevant transaction and return
the securities which they had received or indeed whether, in all cases, they
would be able to do so. The requirement in s.6(2) that the order be "for
restoring the parties to the position which they were in before the transaction
was entered into" demonstrated the need to address this point as did the order
of the Vice-Chancellor at p.265 and the observations of Scott LJ at p.281 where
he also covered the implications of the '
secondary'
liability of the person knowingly concerned. It was in this context that they
spelt out the implications of what could properly be ordered.
But
neither the Vice-Chancellor nor the Court of Appeal sought to contradict the
wide words used in s.6(2). At p.264 the Vice-Chancellor affirmed the
generality of the words and the breadth of the parliamentary intention. At
p.271, Scott LJ noted that
"the discretion of the court ("such steps as the court may direct for
restoring the parties") is conferred in very wide terms. Contrast the more
restricted remedy given to investors by section 5."
At
p.277 he said:
"Subject, however, to the limitations to which I have referred I do not
see why any restriction should be placed on the type of order that could be
made under section 6(2). The width of the statutory language, "such steps as
the court may direct," is striking and there is, in my opinion, no good reason
why it should be restricted. Nor, in my opinion, does the statutory language
warrant any distinction between the type of order that can be made against the
contravener and the type of order that can be made against a person "knowingly
concerned" in the contravention. The circumstances of a particular case may,
as a matter of discretion, justify a more stringent order against a contravener
that would be justified against a person "knowingly concerned", but that is not
the point."
At
p.279, he expressed himself in similar terms when dealing with the equivalent
words in s.61(1). The judgment of Steyn LJ contains observations to the same
effect at pp.282, 284 and 285.
Returning
to the present case, the investors were persons who had parted with money to
Scandex, the unauthorised entity. They never received anything in return; they
have no property to return to Scandex. Putting the parties back into the
position in which they were before simply involves the return of money to the
investors. The relevant transactions and parties are identified and defined in
the schedules to the Amended Statement of Claim. The question is therefore
what may the Court properly order by way of steps to be taken for the purpose
of restoring the money to the investors.
In
my judgment there is no objection in principle to directing that, with a view
to facilitating such restoration, sums be paid into court or to some person
appointed by the court (whether it be a receiver or, maybe, the SIB or its
solicitors) to be held subject to further order of the court. Nor is it
objectionable in principle that the payment should be a payment on account
rather than a full payment which would without more suffice to discharge the
liability of the unauthorised person or the person knowingly concerned to make
restitution. Similarly it is not objectionable that the step directed does not
suffice without more to achieve the reinstatement of the investors. In each
case the direction is a step towards the achievement of the statutory
objective. It is analogous to an order restraining a party from disposing of
funds which may, exceptionally, as part of the enforcement or policing of that
order require that sums be paid into an identified account. The fact that
there may be inadequate funds available to effect restitution in full does not
detract from this conclusion; indeed it may be thought to confirm the prudence
of making such a direction. I agree with the order proposed by Millett LJ.
Before
parting with this case, I would wish to join with Scott LJ in emphasising the
wide words used in s.6(2) and the fact that the breadth of the power which they
confer on the Court, on the application of the Securities and Investment Board,
to make orders directed to achieving the statutory objective of procuring the
restoration of the parties to the position in which they were before the
transaction was entered into should not be judicially cut down. The court is
given a wide discretionary power and it should exercise it wherever it
considers it appropriate to do so in order to assist towards that result.
The
cross-appeal on the costs point is also dismissed.
Order:
Appeal allowed. Taxation of costs in respect of appeal to be postponed.
Cross-appeal dismissed. Appellant's contribution assessed at nil. Just and
equitable that the Legal Aid Board should bear the costs under Section 18
subject to Legal Aid Board applying within 10 weeks to this court. No
reference to question of wasted costs to be made. Leave to appeal to House of
Lords refused. Legal Aid Taxation of Respondent's costs.
© 1997 Crown Copyright
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