australian taxation law - Paper Answers

Assignment Question – Term 1 of 2020

Question One

Don't use plagiarized sources. Get Your Custom Essay on

australian taxation law

Just from $13/Page

Order Essay

“In my view there was an identity of interest in the transaction, as between AXA and Macquarie Bank, which was not simply that of vendor and purchaser. Macquarie Bank had, in effect, undertaken to assist AXA to dispose of AXA Health in a way which would minimise AXA’s capital gains tax exposure. They were to have an ongoing relationship with respect to any short-term profit on resale. Their relationship was not at arms length. Their dealings reflected that fact.”

Required:

Critically discuss the decision of the court in Federal Commissioner of Taxation v AXA Asia Pacific Holdings Ltd [2010] FCAFC 134 by considering the above extract from the decision of Dowsett J.

Question Two

S 110-45(1B) of the ITAA 97 reads as follows: “Expenditure does not form part of the second or third element of the cost base to the extent that you have deducted or can deduct it.”

Required:

Critically discuss the practical application of the above provision, with specific reference to the meaning of the words “you have deducted or can deduct it”.

The End

FEDERAL COURT OF AUSTRALIA

Federal Commissioner of Taxation v AXA Asia Pacific Holdings Ltd

[

] FCAFC

Dowsett, Edmonds and Gordon JJ

17-19 May,

November 2010 – Melbourne

Capital gains tax — Scrip-for-scrip roll-over relief under — Whether the parties to the
transaction dealt with each other “at arms length” — Pt IVA of the Income Tax
Assessment Act 1

(Cth) — Whether the respondent obtained a “tax benefit” in
connection with the scheme — Identification of the alternative postulate — Income
Tax Assessment Act 1997 (Cth), Subdiv 124-M — Income Tax Assessment Act 19

(Cth), Pt IVA.

Under a leveraged buy-out arrangement organised by Macquarie Bank Ltd, the taxpayer’s
subsidiary was first sold for $550,000,000 to a company (MB Health) that was incorporated
as a non-wholly-owned subsidiary of Macquarie Bank (and in which Macquarie Bank and
other related entities held interests). Under the arrangement, Macquarie Bank would then
on-sell the subsidiary to a third party and the taxpayer would share in the profits from the
sale. The proceeds for the sale to MB Health comprised $50,000,000 in cash and
replacement shares in MB Health. These replacement shares did not amount to a “significant
stake” which thereby allowed the taxpayer to unilaterally choose the scrip-for-scrip roll-over
in Subdiv 124-M of the Income Tax Assessment Act 1997 (Cth) (the ITAA 1997) to defer the
gain made on the sale.

Macquarie Bank would be paid a fee of several million dollars for arranging the sale in
this way. Related underwriting agreements and various options were also executed to
provide for the payment of the fee, and to protect the interests of the parties. At the same
time, the taxpayer was considering selling the subsidiary directly to an interested third party
(Medical Benefits Fund of Australia Ltd (MBF)).

The Commissioner argued that the taxpayer and Macquarie Bank (on behalf of MB
Health) had “colluded” to structure the transaction in a way that would attract the
scrip-for-scrip roll-over and, as a result, the parties could not be said to be dealing with each
other at “arms length” for the purpose of qualifying for the roll-over (in terms of the
requirements of s 124-780(4) of the ITAA 1997). The Commissioner also argued that Pt IVA
of the Income Tax Assessment Act 1936 (Cth) (the ITAA 1936) applied to the scheme (which
was broadly defined as all the steps from the incorporation of MB Health to the choice of
the roll-over). The Commissioner claimed that in the absence of the scheme, the taxpayer
would have made a direct sale of the subsidiary to another related Macquarie Bank
company, and for which roll-over could not have applied.

At first instance, in AXA Asia Pacific Holdings Ltd v FCT (2009) 77 ATR 829, the Federal
Court held that the taxpayer and Macquarie Bank (on behalf of MB Health) had satisfied the
arms length conditions for the roll-over as it considered there was no evidence either of
collusion or the submission of one party’s will to the other. The court also found that Pt IVA
of the ITAA 1936 did not apply as no tax benefit arose under the scheme as it could not be

180 FEDERAL COURT OF AUSTRALIA [(2010)

reasonable to expect that if the subsidiary had not been sold in this way to MB Health, it
would have been sold directly to the other related Macquarie Bank company as Macquarie
Bank would not have derived its fees under this sale.

On appeal, the Commissioner claimed that the court at first instance erred in its
conclusion that the taxpayer and Macquarie Bank dealt with each other at arms length. In
particular, the Commissioner submitted that the fact that a transaction was devised by
Macquarie Bank for a fee to obtain a revenue advantage for the taxpayer meant that the
parties were not dealing with each other at arms length for the purposes of s 124-780(4) of
the ITAA 1997. In regard to Pt IVA of the ITAA 1936, the Commissioner claimed that the
court at first instance erred in finding there was no tax benefit. The Commissioner relied on
the alternative postulate that if the taxpayer had not entered into the scheme, it would have
been expected to have disposed of its subsidiary directly to another related Macquarie Bank
company and that the court at first instance erred in rejecting this alternative postulate
merely on the basis that Macquarie Bank would not have agreed to such a transaction
because it would have deprived it of its fees.

Held, dismissing the appeal:

Non-arms length dealing

(Per Edmonds and Gordon JJ):

(1) Although the structure through which the acquisition would be achieved contained
features attractive to the taxpayer (including the roll-over), this did not make the transaction
a non-arms length transaction. This was essentially because the taxpayer was motivated to
sell its business and Macquarie Bank was motivated to acquire it in order to on-sell it.

(2) The fact that a purchaser of an asset seeks to obtain, for its own benefit, a collateral
advantage from the purchase transaction (in this case, the earning of fees) over and above
the acquisition of the asset, cannot of itself lead to a conclusion that the parties to the
transaction were not dealing with each other at arms length.

(3) In addition, there was no evidence that the purchase price did not represent the market
value of the asset. The fact that the vendor (the taxpayer) had the right to participate in any
profit arising to the purchaser (Macquarie Bank) from the onward sale of the asset did not
indicate otherwise. To the contrary, this reflected the bargaining power which the vendor
(the taxpayer), brought to bear on the overall architecture of the transaction.

(Per Dowsett J in dissent):

(4) There was an “identity of interest” in the transaction, as between the taxpayer and
Macquarie Bank, which was not simply that of vendor and purchaser as the transaction was
designed to enable Macquarie Bank to obtain fees for their services, and not to just acquire
an asset (that is, MB Health).

(5) In the context of this ongoing relationship (which included an interest in any profit on
the re-sale of MB Health) their relationship was not at arms length and that their dealings
reflected this fact.

Part IVA of the Income Tax Assessment Act 1936 (Cth)

(6) The onus is on the taxpayer to establish that a tax benefit was not obtained in
connection with the scheme, that is, the taxpayer must show that the amount would not have
been included, or might not reasonably be expected to have been included, in its assessable
income if the scheme had not been entered into or carried out.

(7) An objective inquiry is required as to what would have been included or might
reasonably be expected to have been included in the assessable income had the “scheme”
not been entered into or carried out. This requires a comparison between the “scheme” and
an alternative postulate, or counterfactual. The alternative postulate requires a prediction as
to events which would have taken place if the scheme had not been entered into or carried
out. That prediction must be sufficiently reliable for it to be regarded as reasonable and must
be more than a possibility.

(8) The events that would have, or might reasonably be expected to have, taken place in
the absence of the scheme and which are identified as a result of the objective inquiry are
not confined or defined by the scheme itself.

18181 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD

(9) In the end, the court will decide what would have been done, or might reasonably be
expected to have been done, in lieu of the scheme having regard to all of the evidence that
is led.

(10) The objective facts before the court at first instance were that the related
underwriting agreement and options would not have been entered into had the scheme not
been carried out and, therefore, the fees payable to Macquarie Bank under those agreements
would have been lost. These objective facts were accepted by court at first instance and
thereby discharged the taxpayer’s onus of proving that the Commissioner’s alternative
postulate “was not sufficiently reliable for it to be regarded as reasonable.”

(11) The Commissioner’s submission that it was a “given” that a direct sale of the
taxpayer’s subsidiary would have taken place absent the scheme is contrary to the evidence
and ignores the significance of the fees that were imposed under the related underwriting
agreement. In short, the evidence demonstrated that a direct sale would not have (or would
not reasonably be expected to have) occurred because it would have, inter alia, denied
Macquarie Bank its fees.

(12) The Commissioner’s submission that the court at first instance erred in failing to
consider the “putative purpose” of the scheme was without foundation as there was no
factual finding that the “putative purpose” of the scheme was to attract the benefit of the
scrip-for-scrip roll-over. In addition, looking to the “putative purpose” of the scheme is not
contemplated by s 177C(1)(a) of the ITAA 1936 and is contrary to the notion that the
inquiry be one based on objective fact.

Cases Cited

ACI Operations Pty Ltd v Berri Ltd (2005) 15 VR 312.

Australian Trade Commission v WA Meat Exports Pty Ltd (1987) 7 AAR 248; 75 ALR
287.

AW Furse No 5 Will Trust, Trustee for Estate of v FCT (1990) 21 ATR 1

123

; 91 ATC

07.

Barnsdall v FCT (1988) 19 ATR 1

2; 88 ATC

65; 81 ALR 173.

Baxter v FCT (2002) 51 ATR 209; 2002 ATC

17; 1

ALR 519.

Collis v FCT (1996)

ATR 438; 96 ATC 4831.

Epov v FCT (2007) 65 ATR 399; 2007 ATC 4092.

FCT v Dalco (1990) 168 CLR 614; 20 ATR 1370;

ALJR 166; 90 ATC 4088; 90 ALR
341.

FCT v Hart (2004) 217 CLR 216; 55 ATR 712; 78 ALJR 875; 2004 ATC 4599; 206 ALR
207.

FCT v Lenzo (2008) 167 FCR 255; 71 ATR 511; 2008 ATC 20-014; 247 ALR 242.

FCT v Mochkin (2003) 127 FCR 185; 52 ATR 198; 2003 ATC 4272.

FCT v Peabody (1994) 181 CLR 359; 28 ATR 344; 68 ALJR 680; 94 ATC 4663; 12

ALR 451.

FCT v Spotless Services Ltd (1996) 1

CLR 404; 34 ATR 183; 71 ALJR 81; 96 ATC
5201;

141

ALR 92.

FCT v Trail Bros Steel & Plastics Pty Ltd (2010) 186 FCR 410;

ATR 780; 2010 ATC
20-198; 272 ALR 40.

Gauci v FCT (1975) 135 CLR 81; 5 ATR 672; 50 ALJR 358; 34 LGRA 321; 75 ATC
42

; 8 ALR 155.

Granby Pty Ltd v FCT (1995)

ATR 400; 95 ATC 4240; 129 ALR 503.

McAndrew v FCT (1956) 98 CLR

3; [1956] ALR 1008.

182 FEDERAL COURT OF AUSTRALIA [(2010)

McCormack v FCT (1979) 143 CLR 284; 9 ATR 610;

ALJR 436; 79 ATC 4

111

;

ALR 583.

McCutcheon v FCT (2008) 168 FCR 149;

ATR 607; 2008 ATC 20-009.

RAL v FCT (2002) 50 ATR

107

6; 2002 ATC 109.

Spencer v Commonwealth (1907) 5 CLR 418 at 427; 14 ALR 253.

WD & HO Wills (Aust) Pty Ltd v FCT (1996) 65 FCR 298; 32 ATR 168; 96 ATC 4

Appeal

This was an appeal by the Commissioner to the full Federal Court from a decision of
the Federal Court at first instance in which the court dismissed the Commissioner’s
appeal.

M Moshinsky SC and D Mandie, for the appellant.

G J Davies QC and A T Broadfoot, for the respondent.

Cur adv vult

18 November 2010

Dowsett J.

Introduction

I have read the reasons prepared by Edmonds and Gordon JJ and agree that, to the
extent that the appellant (the Commissioner) relies upon Pt IVA of the Income Tax
Assessment Act 1936 (Cth) (the ITAA 1936) the appeal should fail. My reasons for that
view are substantially the same as those given by their Honours. However I conclude
that the Commissioner should succeed on the “roll-over” point in connection with
Subdiv 124-M of the Income Tax Assessment Act 1997 (Cth) (the ITAA 1997). I do not
propose to rehearse in detail the facts of the case. They appear from the judgment at first
instance (AXA Asia Pacific Holdings Ltd v FCT (2009) 77 ATR 829; 2009 ATC 20-151)
and from their Honours’ reasons.

I shall refer to the parties and other entities identified in the primary judge’s reasons as
follows:

the appellant: the “Commissioner”;

the respondent: “AXA;”

Medical Benefits Fund of Australia Ltd: “MBF”;

AXA Australian Health Insurance Pty Ltd: “AXA Health”;

Macquarie Bank Ltd

(other than Macquarie Advisory, but including Macquarie
PTG):

“Macquarie Bank”;

Macquarie’s advisory arm: “Macquarie advisory”;

Macquarie’s Principal Transactions Group: “Macquarie PTG”;

British United Provident Insurance Ltd: “BUPA”;

Macquarie Health Acquisitions Pty Ltd: “Macquarie Health
Acquisitions”;

Macquarie Health Holdings Pty Ltd: “Macquarie Health
Holdings”;

Macquarie Health Funding Pty Ltd: “Macquarie Health Funding”;

BUPA Australia Pty Ltd: “BUPA Australia”;

MB Health Holdings Pty Ltd “MB Health Holdings”.

18381 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Dowsett J)

The separate identification of Macquarie Bank, Macquarie advisory and Macquarie
PTG is necessary at some stages in the consideration of this case. However, as I
understand it, the only relevant legal entity is Macquarie Bank Ltd of which Macquarie
advisory and Macquarie PTG are parts. The need for separate identification arises out of
the different functions performed for AXA by Macquarie advisory and Macquarie PTG,
leading to the erection of a “Chinese Wall” to separate the involvement of Macquarie
advisory and Macquarie PTG. Of course, that process, laudable as it may have been, did
not change the fact that Macquarie Bank was involved in both capacities. As will be
seen, the Chinese Wall was erected after significant information had already been given
to Macquarie PTG and after the general structure of the relevant transaction had
emerged. As the question is whether Macquarie Health Acquisitions (or Macquarie
Health Funding) dealt with AXA at arms length in the transaction for the sale of AXA
Health, the effect of the Chinese Wall may be of some importance. It is common ground
that Macquarie Bank’s conduct in connection with the transaction is to be attributed to
Macquarie Health Acquisitions (and Macquarie Health Funding).

The relevant provisions

The ITAA 1997 provides for relief from capital gains tax where a capital gain is made
as a result of the exchange of shares in the capital of one corporation for shares in the
capital of another. The purpose of this relief is to facilitate takeovers. The present case
concerns a transaction by which AXA transferred all of the shares in AXA Health to
Macquarie Health Funding pursuant to an agreement with Macquarie Health Acquisitions
which held all of the issued shares in Macquarie Health Funding. The transaction was
much more complicated than is suggested by that short description and involved other
parties, directly and indirectly. However it was the disposition by AXA of the shares in
AXA Health which generated the relevant capital gain. It is common ground that AXA
will be entitled to roll-over relief if it is able to satisfy the requirements of s 124-780(4)
and (5) which provides:

(4) The conditions specified in subsection (5) must be satisfied if the original interest
holder and an acquiring entity did not deal with each other at arms length and:

(a) neither the original entity nor the replacement entity had at least 300 members just
before the arrangement started; or

(b) the original interest holder, the original entity and an acquiring entity were all
members o f the same linked group just before that time.

Note There are some cases where a company will not be regarded as having 300
members: see section 124-810.

(5) The conditions are:

(a) the market value of the original interest holder’s capital proceeds for the exchange is
at least substantially the same as the market value of its original interest; and

(b) its replacement interest carries the same kind of rights and obligations as those
attached to its original interest.

…

(7) A company is the ultimate holding company of a wholly-owned group if it is not a
100% subsidiary of another company in the group.

The term “arms length” is defined in s 995-1 of the ITAA 1997 as follows:

… in determining whether parties deal at arms length, consider any connection between
them and any other relevant circumstance.

Definitions

The present appeal focuses upon the meaning of the expression “did not deal with
each other at arms length” where it appears in s 124-780(4) and its application to the

184 FEDERAL COURT OF AUSTRALIA [(2010)

3
4

facts of this case. The learned primary Judge referred to a number of cases in which
similar expressions have been considered. In particular his Honour referred to definitions
identified by the full court in Australian Trade Commission v WA Meat Exports Pty Ltd
(1987) 7 AAR 248 at 252; 75 ALR 287 at 291 as follows:

The first matter to be determined is the meaning of the phrase “not at arms length” where
used in s 4(8) of the Export Market Development Grants Act 19

(Cth). It is, of course,
often found in revenue statutes …. The ordinary meaning of the phrase is explained in
Osborn’s Concise Law Dictionary, 6th ed at 32: “The relationship which exists between
parties who are strangers to each other, and who bear no special duty, obligation, or relation
to each other, for example, vendor and purchaser. …”

A similar explanation is given by Black’s Law Dictionary, 5th ed at 100: “arms length
transaction. Said of a transaction negotiated by unrelated parties, each acting in his or her
own self interest; the basis for a fair market value determination. Commonly applied in
areas of taxation when there are dealings between related corporations, for example, parent
and subsidiary. … The standard under which unrelated parties, each acting in his or her own
best interest, would carry out a particular transaction. For example, if a corporation sells
property to its sole shareholder for $10,000, in testing whether $10,000 is an ‘arms length’
price it must be ascertained for how much the corporation could have sold the property to a
disinterested third party in a bargained transaction.”

I add 2 more general definitions. The Oxford English Dictionary, 2nd ed (1989) states:

… at arms length: as far out or away from one as one can reach with the arm; hence, away
from close contact or familiarity, at a distance; spec. in Law, without fiduciary relations, as
those of trustee or solicitor to a client; (at) arms length: …, designating a sale or transaction
in which neither party controls the other.

The Collins Australian Dictionary, 7th ed (2005) defines the term as meaning:

… at a distance; away from familiarity with or subjection to another.

The cases

I should briefly examine the cases. The first in time is the decision of the full court
(Beaumont, Wilcox and Burchett JJ) in WA Meat Exports. That case concerned a “grant
entitlement” in respect of eligible expenditure. Eligible expenditure was expenditure
which, in the opinion of the relevant decision-maker, had been incurred by a person
primarily and principally for the purpose of expanding the export of goods produced,
assembled or processed in Australia. Excluded from the definition of expenditure was
any amount paid to a person by a prescribed associate. The term “prescribed associate”
was defined to include “any person determined by the [decision-maker] to be a person
not at arms length with the claimant. …” In that case the claimant company had retained
the services of a former employee, such services being provided by him as an employee
of another company which he owned. After the references to Osborne and Black referred
to above, the court observed (at AAR 252; ALR 291):

There is no reason to suppose that the ordinary meaning of the phrase was not intended to
be applied here. That is to say, the context of s 4 is consistent with the disqualification of
expenditure by one party in favour of another where one of them has the ability to exert
personal influence or control over the other. It is evident that the policy of the legislation
would seek to exclude payments to such persons, because, if such payments were not
excluded, abuse of the incentive scheme provided by the Act would be open. An obvious
example is the possibility that parties might seek to inflate the fees payable for particular
services.

In Re Hains; Barnsdall v FCT (1988) 19 ATR 1352; 88 ATC 4565; 81 ALR 173,
Davies J considered a provision which provided that:

18581 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Dowsett J)

• where a taxpayer had sold property within 12 months of its purchase;

• there was no consideration, or inadequate or excessive consideration for the sale;
and

• the Commissioner was satisfied that having regard to any connection between
the taxpayer and the purchaser or any other relevant circumstances, the taxpayer
and the other person were not dealing with each other at arms length;

then certain tax consequences followed. His Honour considered that the expression “not
dealing with each other at arms length” differed from the expression “not at arms length”
used in WA Meat Exports. Davies J observed that (at ATR 1355; ATC 4568; ALR 176):

That term should not be read as if the words “dealing with” were not present. The
Commissioner is required to be satisfied not merely of a connection between a taxpayer and
the person to whom the taxpayer transferred, but also of the fact that they were not dealing
with each other at arms length. A finding as to a connection between the parties is simply a
step in the course of reasoning and will not be determinative unless it leads to the ultimate
conclusion.

The taxpayer had sold shares to a company which he owned. After examining a
number of cases his Honour observed (at ATR 1356; ATC 4568; ALR 177):

It will be seen that those cases looked primarily to the relationship between the
contracting parties and to influence and control.

I do not disagree with this analysis, but I accept … [the] submission that there may be
transactions between related parties in which the parties deal with each other at arms length.
This may occur notwithstanding a close relationship between the parties or the power of one
party to control the other.

In that case the taxpayer submitted that the Commissioner, in reaching his decision,
had considered only the relationship between the parties and not the nature of the
transaction, or the circumstances in which the parties had dealt with each other. Davies J
rejected this criticism, observing that there was other material bearing upon the question,
including evidence that the shares were not sold on the open market, but rather
transferred pursuant to a private transaction “of a somewhat unusual character.” The
“unusual” nature of the transaction was that the taxpayer had acquired rights to the
allotment of shares in a public company and granted to his company options to acquire
such shares when they were allotted. The price payable was such that the taxpayer’s
costs and receipts matched. On this material his Honour considered that the conclusion
was inevitable that the parties had not dealt at arms length, observing (at ATR 1357; ATC
4569; ALR 178) that:

Proof that a transaction was fair is not sufficient to show, in the context, that the dealing
was at arms length. The term “at arms length” in s 26AAA(4)(b) is not to be construed as
meaning “for a fair price.” Indeed, this provision did not turn its attention primarily to price,
but the price paid may be a relevant factor. The provision did not purport to fix a fair price
for the transaction but rather, when a finding had been made that the dealing was not at arms
length, fixed and [sic] arbitrary consideration, the value of the property at the time of its
sale.

The subject transaction was one between [the taxpayer] and his private company. It was a
private transaction with a company which he controlled and which was his investment and
share dealing arm. Such a transaction is not an arms length dealing for the purposes of
s 26AAA(4).

Trustee for Estate of AW Furse No 5 Will Trust v FCT (1990) 21 ATR 1123; 91 ATC
4007 concerned a provision in the ITAA 1936 dealing with assessable income:

… derived by a trustee, directly or indirectly, under or as a result of an agreement … any 2
or more of the parties to which were not dealing with each other at arms length in relation to

186 FEDERAL COURT OF AUSTRALIA [(2010)

the agreement and the amount of the assessable income so derived is greater than the
amount … of the assessable income that, in the opinion of the Commissioner, would have
been derived by the trustee, directly or indirectly, under or as a result of that agreement if
the parties to the agreement had dealt with each other at arms length in relation to the
agreement. …

Hill J said (at ATR 1132; ATC 4014-4015):

The first of the 2 issues is not to be decided solely by asking whether the parties to the
relevant agreement were at arms length to each other. The emphasis in this subsection is
rather upon whether those parties, in relation to the agreement, dealt with each other at arms
length. The fact that the parties are themselves not at arms length does not mean that they
may not, in respect of a particular dealing, deal with each other at arms length. This is not to
say that the relationship between the parties is irrelevant to the issue to be determined under
the subsection.

His Honour then referred to the decision of Davies J in Hains and continued:

What is required in determining whether parties dealt with each other in respect of the
particular dealing at arms length is an assessment whether in respect of that dealing they
dealt with each other as arms length parties would normally do, so that the outcome of their
dealing is a matter of real bargaining.

Both Hains and Furse highlight the need to examine the course of the dealings between
the parties in order to determine whether they have dealt with each other at arms length.

Granby Pty Ltd v FCT (1995) 30 ATR 400; 95 ATC 4240; 129 ALR 503 concerned the
calculation of a cost base for capital gains tax purposes. Section 160ZH(9)(c) provided
that in determining such cost base, certain consequences would follow if the
consideration paid by the taxpayer was less than the market value of the asset at the time
of the acquisition, and the taxpayer and the person from whom it had acquired the asset
were not dealing with each other at arms length in connection with the acquisition. Lee J
said (at ATR 403; ATC 4243; ALR 506):

The expression “dealing with each other at arms length” involves an analysis of the manner
in which the parties to a transaction conducted themselves in forming that transaction. What
is asked is whether the parties behaved in the manner in which parties at arms length would
be expected to behave in conducting their affairs. Of course, it is relevant to that inquiry to
determine the nature of the relationship between the parties, for if the parties are not parties
at arms length the inference may be drawn that they did not deal with each other at arms
length.

Again the relevant considerations were the relationship between the parties and the
extent to which their conduct of the transaction was consistent with that which one
would expect in negotiation between parties at arms length. His Honour then observed
(at ATR 403-404; ATC 4243-4244; ALR 506-507) that whatever else the expression
might mean, it at least meant that the parties to a transaction had acted “severally and
independently in forming their bargain.” His Honour continued:

That is not to say, however, that parties at arms length will be dealing with each at arms
length in a transaction in which they collude to achieve a particular result, or in which one
of the parties submits the exercise of its will to the dictation of the other, perhaps, to
promote the interests of the other.

His Honour was there identifying circumstances in which parties, otherwise at arms
length, nonetheless might be found to have dealt with each other, other than at arms
length. His Honour was certainly not saying that, in general, it is necessary that the
parties collude in order that they be found not to have dealt with each other at arms

18781 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Dowsett J)

length. Nor was he necessarily seeking to describe exhaustively the circumstances in
which parties, otherwise at arms length, would be said to have dealt other than at arms
length. His Honour then observed that:

… there was no evidence that the lessor corporations and the partnership acted in concert
with an ulterior purpose, or that the lessor corporations accepted dictation or instruction
from the partnership to the exclusion of the exercise of the independent minds of the
corporations. …

The words “ulterior purpose” seem to mean a purpose “beyond what is immediate or
present” or “beyond what is openly stated or evident; intentionally concealed or kept in
the background”: New Shorter Oxford English Dictionary (1993).

Collis v FCT (1996) 33 ATR 438; 96 ATC 4831, concerned the profit arising from the
sale of land and the effect for tax purposes of s 26AAA of the ITAA 1936. 4 parcels of
land had been offered for sale at auction. A factory was built on 3 of the parcels. The 4th
parcel was used for access to the factory. The taxpayers owned all 4 parcels, the 4th
block having only recently been acquired. The company occupying and operating the
factory was also owned by them. The 4 parcels were sold together by auction. After the
fall of the hammer the taxpayers asked the purchaser to sign 2 contracts for purchase,
one over the 4th block for $200,000, and the other over the other 3 blocks for
$1,437,000. Section 26AAA provided that certain tax consequences would flow if the
Commissioner was satisfied that, having regard to any connection between the taxpayer
and the purchaser, or any other relevant circumstances, the parties had not dealt with
each other at arms length. The question was whether or not the arrangements which
occurred after the fall of the hammer constituted a dealing not at arms length.
Jenkinson J said (at ATR 442; ATC 4836-4837):

There is nothing in the material before the tribunal to suggest, nor was it submitted, that
[the purchaser] and the applicants were not dealing with each other at arms length at and
before the fall of the hammer. The fact that the oral contract was unenforceable – and
remained unenforceable until [the purchaser] became the registered proprietor of the subject
land – would not affect the operation of s 26AAA(2). Presumably the parties have taken the
view that the making of the subsequent written contract for the sale of the subject land and
the written contract for the sale of the factory land had the result that the oral contract was
thereupon rescinded, no doubt pursuant to an implied term of each of the written contracts
that that should be so. The oral contract being rescinded, the subject land could not perhaps
be said to have been sold “in pursuance of” that contract. …

The form of contract for purchase of the whole of the land offered at the auction was
before the tribunal. … On the evidence before the tribunal [the purchaser] could be expected
to be indifferent as to whether he made the 2 contracts proposed or the one contract which
the applicants had represented that they were willing to make with the successful bidder at
the auction, provided that he was satisfied that the former course would not expose him to
any disadvantage or risk of disadvantage not attendant on the latter course. The evidence
before the tribunal strongly suggested that he was so satisfied, and the tribunal appears to
have found that he was. If he was, the inference – which it is for the tribunal, not for the
court, to draw – seems irresistible that [the purchaser] did not deal with the applicants at
arms length.

His Honour then referred to the observations of Lee J in Granby and continued:

I respectfully agree. The inference must surely be drawn that [the purchaser], being
indifferent, submitted the exercise of his will to the applicants’ wishes in acceding to their
request.

As in the earlier cases, Jenkinson J focussed upon the way in which the parties dealt
with each other. The purchaser had bid for all 4 blocks as one parcel but agreed to sign

188 FEDERAL COURT OF AUSTRALIA [(2010)

2 contracts although it yielded no further benefit to him. Clearly, his agreement was for
no purpose other than to oblige the vendors. In these circumstances, the parties could be
seen to be other than at arms length. On the other hand, if a potential purchaser were to
include a particular term in its offer to a potential vendor, in the expectation that the
latter would find it attractive, thus inducing it to sell to the purchaser, the position may be
otherwise. The purchaser will have made the offer in order to advance its own interests.

ACI Operations Pty Ltd v Berri Ltd (2005) 15 VR 312 concerned the construction of
the term “bona fide arms length” offer in a contract for the supply of packaging.
Dodds-Streeton J said (at 334-335 [223]-[226]):

[223] The above authorities indicate that an arms length relationship is that of strangers,
or parties who are unaffected by existing mutual duties, liabilities, obligations,
cross-ownership of assets, or identity of interests which might: (a) enable either party to
influence or control the other; or (b) induce either party to serve that common interest in
such a way as to modify the terms on which strangers would deal.

[224] The concept of an arms length relationship is distinct from that of an arms length
dealing or transaction, despite the potential overlap. Unrelated parties may collude or
otherwise deal with each other in an interested way, so that neither the dealing nor the
resultant transaction may properly be considered arms length.

[225] Where the parties are not in an arms length relationship, it is recognised that the
inference may be drawn that they did not deal with each other at arms length. It may further
be inferred that the resultant transaction is not arms length.

[226] Related parties may nevertheless, in some circumstances, demonstrate a dealing
which displaces the inference based on their relationship. They may engage in the
disinterested bargaining characteristic of strangers, applying independent separate wills. The
circumstances of the impugned transaction may be such that, despite the parties’ connection
or common interest, the interposition of some independent process (such as the sale of
shares on the stock exchange) ensures that the transaction itself is arms length, in the sense
that it could equally have been concluded by unrelated parties, consulting their own
self-interest and uninfluenced by any particular association or interest in common.

The learned primary judge also referred to the decision of Gyles J in Baxter v FCT
(2002) 51 ATR 209; 2002 ATC 4917; 196 ALR 519, identifying the proposition that the
fact that a transaction is devised in a certain way so as to obtain a revenue advantage
does not mean that the transaction is not at arms length. I accept that the offer and
acceptance of a proposal which has a tax-related attraction for the offeree may not
necessarily lead to the conclusion that the transaction is not at arms length. For reasons
which I have given, the offer may well have been motivated by the offeror’s self-interest.
However, there will be cases in which one side accommodates the other simply because
it is able to do so without loss or inconvenience to itself, or because there are extraneous
reasons for wanting so to do. I use the word “extraneous” in lieu of the word “ulterior”
used in Granby, but with the purpose of describing a motivation other than that of
facilitating the proposed transaction.

Gyles J found difficulty with the proposition that parties at arms length might become
involved in transactions which were not at arms length. I suspect that his Honour meant
that the very fact of entering into a non-arms length transaction means that the parties are
not at arms length for the purposes of that transaction. I agree with that proposition.

In summary

I have no real difficulty with any of the propositions which emerge from those cases.
They may be summarised as follows:

• in determining whether parties have dealt with each other at arms length in a
particular transaction, one may have regard to the relationship between them;

18981 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Dowsett J)

• one must also examine the circumstances of the transaction and the context in
which it occurred;

• one should do so with a view to determining whether or not the parties have
conducted the transaction in a way which one would expect of parties dealing at
arms length in such a transaction;

• relevant factors which may emerge include existing mutual duties, liabilities,
obligations, cross-ownership of assets, or identity of interests which might
enable either party to influence or control the other, or induce either party to
serve a common interest and so modify the terms on which strangers would
deal;

• where the parties are not in an arms length relationship, one may infer that they
did not deal with each other at arms length, and that the resultant transaction is
not at arms length;

• however related parties may, in some circumstances, so conduct a dealing as to
displace any inference based on the relationship;

• unrelated parties may, on occasions, deal with each other in such a way that the
resultant transaction may not properly be considered to be at arms length.

Is s 124-780(5) engaged?

In the present case AXA bears the burden imposed by s 14ZZO of the Taxation
Administration Act 1953 (Cth) (the TAA) of establishing that the Commissioner’s
assessment was excessive. In order to do this it undertakes the task of demonstrating that
it was not obliged to comply with the requirements of s 124-780(5) of the ITAA 1997,
that subsection not being engaged pursuant to s 124-780(4). It is common ground that
AXA cannot satisfy the requirements of s 124-780(5)(b). However s 124-780(4) will
only engage the operation of s 124-780(5) if the parties to the relevant transaction did not
deal with each other at arms length, and either:

(a) neither the original entity nor the replacement entity had at least 300 members
just before the arrangement started; or

(b) the original interest-holder, the original entity and an acquiring entity were all
members of the same linked group just before that time.

It seems to be common ground that for present purposes s 124-780(4)(a) applies whilst
s 124-780(4)(b) does not. Thus, if the relevant parties did not deal at arms length,
s 124-780(4) will operate to engage s 124-780(5). It is therefore necessary that AXA
demonstrate that it dealt with Macquarie Bank at arms length.

At first instance

The primary judge said (at ATR 873 [

101

]; ATC 10,501-10,502 [101]), concerning the
decision in ACI Operations (at 334 [223]-[224] and 336 [239]-[241]):

Counsel for the Commissioner relied particularly on so much of Dodds-Streeton J’s
judgment as commences “Unrelated parties …”. I would, with respect, regard that passage
as unobjectionable, but it expresses the point at a very high level of generality. It leaves
open the factual, and I consider more problematic, questions which will arise in every case
where there was “collusion” or rehearsed dealings to the extent sufficient to justify the
conclusion that the parties did not deal with each other at arms length.

I do not entirely understand the term “rehearsed dealings.” Presumably, it means
something like collusion. It suggests an act previously agreed upon. The word
“collusion” itself carries negative overtones. The New Shorter Oxford Dictionary (1993)
defines it to mean: “… secret agreement or understanding for nefarious purposes;
conspiracy; fraud, trickery.” Its legal meaning is said to be: “… an agreement between 2
or more people, especially ostensible opponents in a suit, to act to the prejudice of a third

190 FEDERAL COURT OF AUSTRALIA [(2010)

party or for an improper purpose.” The word “collude” means: “… conspire, plot,
connive; act in secret concert.” Nothing in the wording of s 124-780 suggests the need to
prove any degree of moral impropriety. None of the other cases, nor the dictionary
references adopted in WA Meat Exports suggests the necessary involvement of an
element of collusion. As far as I can see the term is used only in Granby, but Lee J was
suggesting only that collusion between interested parties would mean that dealings were
not at arms length. Collis and ACI suggest that the “dictation” contemplated in Granby
need not involve moral, legal or physical obligation. The cases generally support an
approach which involves examination of the parties’ dealings in order to determine
whether they have dealt with each other in the way in which parties at arms length might
deal in such a transaction. Collusion might be an example of dealings not at arms length.
Submission of the will of one party to that of the other may be the cause of a transaction
being other than at arms length. Neither “label” exhaustively identifies the essential
indicia of such a transaction.

The primary judge (at ATR 873 [103]; ATC 10,502 [103]) accepted denials by
Messrs Owen and Penn that AXA and Macquarie Bank had colluded with a view to
devising a means to avoid the incidence of capital gains tax or otherwise. His Honour
also observed that the Commissioner had not strongly pressed the assertion of collusion.
His Honour found no evidence of collaboration between AXA and Macquarie Bank, and
that there was no suggestion in the evidence that AXA or any of its directors or senior
executives knew, before 1 March 2002, that Macquarie Bank proposed a structure in
which any acquirer of AXA Health shares would not be wholly owned by Macquarie
Bank. AXA understood that there would be roll-over relief on its capital gain. However
his Honour considered that such knowledge did not amount to collusion or submission
by Macquarie Bank of its will to the wishes of AXA or vice versa.

These comments suggest that his Honour limited his inquiry to the alternatives
expressed by Lee J in Granby (at ATR 403-404; ATC 4243-4244; ALR 507) (collusion or
submission of the will). In my view that approach involved a narrower test than is
established by the cases. This is particularly so, given the connotations attaching to the
word’ “collusion” and to the concept of submission of the will. As is demonstrated by
Collis, mere agreement out of lack of interest may be sufficient to deprive a transaction
of arms length status. Whilst Jenkinson J seems to have considered such agreement to
involve submission of the will, the expression seems a little too dramatic for use in
describing a commonplace event. The cases indicate that the proper approach necessarily
involves an examination of the relationships between the parties and an assessment of
their conduct against expectations as to the way in which a similar transaction would be
conducted at arms length.

The appeal

In the notice of appeal the Commissioner asserts that the primary judge erred in
holding that AXA and Macquarie Bank had dealt with each at arms length and, in
particular, that:

3. The learned judge erred in failing to hold that AXA and [Macquarie Health Funding]
did not deal with each other “at arms length” within the meaning of s 124-780(4) of
the ITAA 1997 in circumstances where:

(a) in return for a fee, [Macquarie Bank] (on behalf of [Macquarie Health
Funding]) designed the structure of the transaction to further the interests of
AXA by reducing the capital gains tax payable upon its disposal of shares in
AXA Health;

(b) further or alternatively, in return for a fee, [Macquarie Bank] (on behalf of

19181 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Dowsett J)

[Macquarie Health Funding]) prepared the terms of the transaction so as to
further the interests of AXA by reducing the capital gains tax payable upon
its disposal of shares in AXA Health;

(c) further or alternatively, in negotiating the terms of the transaction, the parties
worked together to further the interests of AXA by reducing the capital gains
tax payable upon its disposal of shares in AXA Health.

4. The learned judge erred in concluding that the fact that a transaction is devised in a
certain way by a party to obtain a revenue advantage for the other party does not
mean that the transaction is a non-arms length one for the purposes of s 124-780(4)
of the ITAA 1997.

This approach focuses upon both the relationship between AXA and Macquarie Bank
and the conduct of negotiations between them. In his written submissions the
Commissioner submits that the primary judge erred in his interpretation of the
requirement that there be an arms length dealing and in his conclusions on the facts.

The dealings

During 2001, Macquarie advisory was advising AXA concerning the proposed
disposal of its subsidy AXA Health. A possible buyer was MBF. Negotiations had been
continuing for some time. As appears from the primary judge’s reasons (at ATR 834 [6];
ATC 10,468 [6]) Macquarie advisory “had become concerned that … ‘there were no
competitive forces driving the negotiations with MBF.’” There was also concern about
the financial ability of MBF to fund the acquisition and complete the transaction. For
these reasons Ms Birch of Macquarie advisory and others were considering alternative
options, including a preliminary investigation as to the viability of an initial public
offering of shares. Subsequently there was consideration of a leveraged buy-out.
Macquarie advisory sought to engage Macquarie PTG in the process. On 18 November,
Mr McLean of Macquarie advisory had sent an e-mail to Macquarie Bank personnel,
including Mr Facioni who was responsible for the operation of Macquarie PTG. A
meeting with AXA was scheduled for 21 November 2001 at which Macquarie PTG was
to make a presentation concerning a proposed initial public offering or leveraged
buy-out. The e-mail appears at appeal book Pt B vol 1, tab 55. It included the following
information:

• that AXA was very interested in an initial public offer or an management
buy-out/leveraged buy-out;

• “Negotiations continue with MBF – the latest development is that we have set
up a 2 week deadline to resolve the (long list of) outstanding issues. By the end
of this 2 week period (Friday, 30 November) it is likely we will either call off
negotiations or start frantically trying to document a deal by Christmas. As a
reminder, MBF are offering a ‘pivot price’ of $560,000,000, with an upside
sharing mechanism that could achieve total consideration of up to
$640,000,000-$650,000,000 if the business performs well (and a downside risk
sharing mechanism if adverse regulatory events occur). AXA is likely to have to
provide MBF with around $250,000,000 of vendor finance, which AXA is
unsurprisingly not particularly happy about;”

• Mr McLean’s assessment of AXA’s likely reaction to various price ranges;

• that AXA would probably prefer the management buy-out/leveraged buy-out
over an initial public offering because it would be implemented more quickly
and have lower transaction costs; and

192 FEDERAL COURT OF AUSTRALIA [(2010)

• that Mr McLean would confer with the various addressees to ensure that “we are
all happy with” the proposed presentation to AXA.

The letters “MBO” mean “management buy-out”. The distinction between an
management buy-out and a leveraged buy-out is not presently relevant.

In providing this information to Macquarie Bank, Mr McLean was assisting
Macquarie Bank to prepare its proposal to AXA. It is not clear whether he did so in the
belief that Macquarie Bank would use the information in order to assist AXA to achieve
its goal or for its own purposes. However the e-mail suggests that he was participating as
an officer of a potential purchaser. The presentation occurred on 21 November 2001. It
seems from the presentation slides used on that occasion, that Macquarie Bank’s
involvement as a purchaser was already contemplated. In the presentation, the proposed
price range reflected the range suggested by Mr McLean. AXA had previously
determined that AXA Health was worth $570,000,000 plus a further $105,000,000,
representing one-half of its valuation of “agreed synergies”. Thus AXA was asserting a
total valuation of $675,000,000. Whether Mr McLean knew of this view is not clear, but
he seems to have had knowledge of AXA’s expectations.

Macquarie Bank suggested that the leveraged buy-out process might be conducted in
parallel with a trade sale to MBF and an initial public offering at no additional cost to
AXA. His Honour understood this to mean that if negotiations with MBF came to
fruition, AXA Health could be on-sold from Macquarie Bank to MBF. This suggests that
the relationship between AXA and Macquarie Bank was not that usually found between
potential seller and potential buyer.

Although at some stages it was suggested that Macquarie Bank might retain AXA
Health for up to 3 years in the hope of re-selling at a profit, the evidence generally
suggests an intention to dispose of it as soon as was practicable. Further, Macquarie
Bank seems never to have necessarily expected to derive a profit on resale, although it no
doubt hoped for such an outcome. The evidence suggests that Macquarie Bank’s interest
in the transaction was substantially focussed upon the fees to be derived from facilitating
it and not from the acquisition of the asset. In that sense Macquarie Bank was not a
willing purchaser, dealing with a not unwilling vendor, to paraphrase the language of
Griffith CJ in Spencer v Commonwealth (1907) 5 CLR 418 at 427 at 432. Rather, it was
anxious to facilitate such a sale, even if it had temporarily to acquire AXA Health itself.
Nor was the transaction of the kind contemplated by Isaacs J (at 441) in the same case,
when he said:

To arrive at the value of the land at that date, we have, as I conceive, to suppose it sold then,
not by means of a forced sale, but by voluntary bargaining between the plaintiff and a
purchaser, willing to trade, but neither of them so anxious to do so that he would overlook
any ordinary business consideration.

His Honour was clearly speaking of a buyer wishing to acquire the land, not facilitate
a sale to somebody else.

Mr Facioni said in evidence that Macquarie Bank’s interest was in earning the fees
associated with setting up and completing the transaction, suggesting that the possibility
of profit on any resale of AXA Health was largely incidental to the motivation which led
it to enter into the transaction. He said at paras 9-10 of his affidavit:

9. [Macquarie Bank] did not intend to become a permanent or long-term owner of a
private health insurance business. It had never carried on such a business and did not seek to
do so at this time. At the time of conceiving and developing the proposal regarding AXA
Health I envisaged that [Macquarie Bank] would pre-arrange a full or partial sale of AXA
Health before entering into any binding agreement with the applicant to acquire the
company, in effect a form of sub-underwriting. This could potentially be done by organising

19381 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Dowsett J)

an equity consortium of private investors, thus mitigating the burden and risk for
[Macquarie Bank] of on-selling AXA Health.

10. I considered that organising an equity consortium as part of the leveraged buy-out
would have significant advantages for [Macquarie Bank]. As the arranger of the equity
consortium, [Macquarie Bank] would derive significant fees from the consortium members
as consideration for the provision of advisory, equity, underwriting and debt arranging
services to the consortium. I considered this to be particularly attractive in view of the fact
that [Macquarie Bank] would also derive a significant underwriting fee from the applicant.

At para 43 he said:

In the course of preparing this affidavit I have become aware that the respondent has
suggested that if the applicant had not sold AXA Health to [Macquarie Health Acquisitions],
it would have sold AXA Health directly to MB Health Holdings. That suggestion is
incorrect. The transaction with the applicant to purchase AXA Health had been originated,
structured, negotiated and executed by [Macquarie Bank]. MB Health Holdings, BUPA and
[BUPA Australia] were participants in the transaction, with [Macquarie Bank] as the overall
transaction sponsor. [Macquarie Bank] stood to receive certain financial benefits for
arranging and leading the transaction and for assuming certain material risks (financial and
reputational) and devoting significant resources throughout the course of the transaction. At
no time was MB Health Holdings in a position independently to offer to acquire AXA
Health and, as a 50% shareholder in MB Health Holdings with significant commercial
benefit at stake, [Macquarie Bank] would not have permitted such a transaction to occur.

This evidence suggests strongly that in negotiating the agreement to acquire AXA
Health from AXA, Macquarie Bank was not negotiating as a potential purchaser in the
sense used by the High Court in Spencer. The primary motivation seems not to have
been either long-term acquisition of the business, or even acquisition for the purpose of
resale at a profit. The primary incentive for its involvement in the transaction appears to
have been the associated fees, both those to be received from AXA and those to be
received from the proposed consortium: see also the judgment at first instance (at ATR
843-844 [24]-[26]; ATC 10,476-10,477 [24]-[26] and ATR 846 [31]-[32]; ATC
10,478-10,479 [31]-[32]).

Various other contemporaneous documents demonstrate the ambiguous nature of the
relationship between Macquarie Bank and AXA. In a “proposal summary” for Project
Huey (apparently a name used to identify the AXA Health project) it is said that:

AXA has appointed Macquarie Bank Ltd … to act as financial adviser in regard to the
divestment.

As part of this role, Macquarie Bank is exploring the feasibility of a management buyout
of AXA Health for [$550-$600] million.

Thus, at this stage, Macquarie Bank did not see itself as a buyer but as an adviser.
Under the heading “Constraints” the document states:

While critical to establishing the feasibility of a management buy-out of AXA Health,
AXA has not consented to Macquarie Bank approaching a bank prior to the expiry of
MBF’s exclusivity period (31 December 2001). Further, Macquarie Bank has not yet
conducted financial, accounting or legal due diligence on the business or sought the advice
of an independent consultant.

Accordingly, this paper and all representations made to AXA are subject to achieving
Macquarie Bank’s assumptions relating to debt and confirmatory due diligence on AXA
Health.

The reference to the need for AXA’s consent to Macquarie Bank’s approaching a bank
suggests that the latter was to act on behalf of AXA in so doing. This is hardly consistent
with Macquarie Bank being involved in an arms length transaction with AXA. In the

194 FEDERAL COURT OF AUSTRALIA [(2010)

document Macquarie Bank discloses its own interests in investing up to $

125

,000,000 in
the project, the balance to be provided by a strategic partner. A number of possible
strategic partners are identified, including BUPA. Macquarie Bank’s involvement was
also said to involve receipt of fees. Under the heading “Potential upside” (apparently
from Macquarie Bank’s point of view) the “transaction structuring opportunities” are
said to be to “[m]anage capital gains tax exposure for AXA on sale (share in up to
$100,000,000 NPV uplift to AXA)” and various other matters. Some of the other
potential advantages may have involved longer-term ownership. However it seems clear
that Macquarie Bank saw itself as providing a service to AXA, which service included
management of AXA’s capital gains tax exposure.

In a memorandum dated 22 January 2002 it is suggested that Macquarie Bank was
interested in acquiring AXA Health for the purpose of resale at a profit. However the
proposed structure seems to have contemplated resale within 6 months. In a subsequent
internal briefing memorandum dated 22 February 2002 the preferred option was resale
within 3-12 months, although retention for 2-3 years was also contemplated. Macquarie
Bank was described as:

Promoter, equity arranger/participant, debt arranger, financial adviser. Ongoing strategic
relationship covering M&A and ECM Services, funds management, x-distribution [sic] of
retail products.

In identifying returns to Macquarie Bank, various fees were identified totalling
$20,000,000-$54,000,000, including some fees payable by entities other than AXA. A
possible profit of $16,000,000-$20,000,000 from equity participation was also
contemplated.

The ultimate proposal advanced for approval by Macquarie Bank involved an equity
exposure limited to $20,000,000. In the end the equity sell down agreement provided that
AXA would participate in any profit derived from the subsequent disposition of AXA
Health or its business within 12 months of the completion of the underwriting agreement.
No such profit was derived. Pursuant to the underwriting agreement a $5,000,000
underwriting fee was payable to Macquarie Bank. Pursuant to the equity sell down
agreement a further fee of $5,000,000 was payable for procuring Macquarie Health
Acquisitions as purchaser to satisfy its obligations under the agreement. By the time that
the transaction documentation was completed BUPA had effectively committed itself to
taking all of the shares in AXA Health in the event that Macquarie Bank had not
otherwise been able to dispose of its interest.

Macquarie Bank’s ambiguous position had not passed unnoticed. On 26 Novem-
ber 2001, Mr McLean wrote to Mr Facioni, pointing out difficulties which Ms Foster of
AXA had identified. They included pursuing the leveraged buy-out with Macquarie Bank
in face of the exclusivity arrangement which existed between AXA and MBF. She had
also raised the question of a conflict of interest on the part of Macquarie Bank as
between the role of Macquarie advisory and Macquarie Bank’s role in any leveraged
buy-out. Ms Foster was also concerned about the fact that Macquarie Bank, as a potential
purchaser, had received more information than any other potential bidder for AXA
Health. She suggested that Macquarie Bank should reduce the level of its advisory fees
given that it was to get “a good deal” on the leveraged buy-out. As I have previously
observed, Mr McLean’s interest in the transaction seems not to have been limited to
advising AXA on behalf of Macquarie advisory. He suggested, apparently as a way of
avoiding an accusation that AXA was negotiating with Macquarie Bank in breach of the
exclusivity agreement with MBF, that: “… there is an argument that we are really
looking at financing options for AXA Health … rather than negotiating a sale. …”
However he considered this to be “hard to maintain if we go much further.” Mr McLean

19581 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Dowsett J)

suggested that if Macquarie Bank acquired AXA Health, “we could announce the deal
and then give alternative bidders one month to beat the offer in order to ensure that the
market is fully tested (although it probably is already).” Ms Foster apparently replied that
she did not think that this was “a full answer” as Macquarie Bank had “access to
information that others do not.” Mr McLean then suggested that: “… we could perhaps
agree to set up Chinese Walls between our advisory team and our leveraged buy-out
team, to put the leveraged buy-out team in the same position as they would be in if they
were from a party external to Macquarie Bank.” In view of the information already
supplied, this precaution seems to have emerged at a rather late stage. Mr McLean
continued:

I’m not sure AXA should be concerned about that – it is in their best interests to give us
enough information to put in a fully informed bid (and they are not risking a breach of
confidentiality doing this, given that Macquarie Bank knows the deal already). If the issue is
that there is not a level playing field between potential bidders, we could use a mechanism
such as the “one month to bid” option mentioned above. If AXA really finds this difficult,
we could perhaps look to set up Chinese Walls to limit the flow of information.

As to the question of reduction in fees he said:

The answer here is pretty clear – if we take this up Macquarie Bank will be taking some
very material risks and is likely to pay a figure close to what a synergy buyer is offering for
the business. At the price paid, the deal may or may not go well for Macquarie Bank: it is
not appropriate for us to lose our fee given that we are paying a full price for the business.
The advice is a separate deal from the acquisition.

AXA was concerned to ensure that it participated in any profit derived by Macquarie
Bank from on-selling its interest in AXA Health at a profit. Whether the concern was
primarily financial or more about reputation in the business community is unclear.
However it is clear that AXA and Macquarie Bank accepted that there might be a
relatively quick resale at a profit, suggesting doubts about whether the price being paid to
AXA was market price.

These considerations suggest that this was not a case in which the sale price was
negotiated between a willing, but not overly anxious vendor and a willing, but not overly
anxious purchaser. It was negotiated between a relatively anxious vendor (although that
may not matter much) and a merchant bank which was anxious to derive fees from the
transaction, and was willing to facilitate it by making a short-term investment on its own
accord in the expectation that it would recoup it, possibly with a profit, possibly at a loss.
However, by the time that the agreement was made, the possibility of a loss was gone.
There was, however, the chance of a profit which Macquarie Bank would share with
AXA.

The early stages of the negotiation, from which the ultimate form of the transaction
largely emerged, took place against a background of the knowledge provided to
Mr Facioni and others by Mr McLean. He had derived it from his position as adviser to
AXA. The information included AXA’s likely attitude to possible monetary yields from
the proposed sale and the state of dealings between AXA and MBF, the other likely
purchaser. The position was such that both Ms Foster (for AXA) and Mr McLean were
concerned at the possibility of conflict of interest. Those concerns were justified. It is
also clear that the transaction was structured so as to minimise AXA’s exposure to
capital gains tax. This was not a case of a potential purchaser offering a potential vendor
a tax advantage by structuring the transaction in a way which yielded a particular benefit
to the latter as part of the inducement for accepting the offer. This was rather a case of
Macquarie Bank using its cash resources to provide a service to AXA, its client, for a
fee.

196 FEDERAL COURT OF AUSTRALIA [(2010)

Section 124-780(4) of the ITAA 1997 addresses dealings between the “original interest
holder” and “an acquiring entity.” In the present case, AXA was the original interest
holder. It is common ground that Macquarie Bank acted on behalf of the acquirer,
whether it was Macquarie Health Acquisitions or Macquarie Health Funding, and that it
is Macquarie Bank’s conduct which is to be assessed, together with AXA’s, for the
purpose of determining whether the parties dealt with each other at arms length. The
dealings in question were those which led to the exchange of shares in AXA Health for
shares in Macquarie Health Acquisitions.

Conclusion

The evidence demonstrates the following aspects of those dealings:

• Macquarie Bank was engaged in the dealings for the purpose of assisting AXA
to dispose of AXA Health;

• Macquarie Bank received information concerning the dealings between AXA
and MBF, the other possible acquirer, which information informed its dealings
with AXA regarding the acquisition of AXA Health;

• at least a substantial part of the benefit which Macquarie Bank expected to
derive from the transaction was comprised of fees for facilitating it and from the
acquirer;

• Macquarie Bank advised AXA on the advantages and disadvantages of the
proposed transaction;

• Macquarie Bank’s facilitation of the transaction included its own short-term
capital participation, at least partly for the purpose of earning its fees;

• both AXA and Macquarie Bank were conscious that there was at least a
possibility that Macquarie Bank could make a profit on a quick resale of its
interest in AXA Health, leading AXA to demand and receive a promise that it
would share in any such profit; and

• by the time that the transaction was effected, Macquarie Bank’s capital exposure
was minimal or non-existent.

In my view there was an identity of interest in the transaction, as between AXA and
Macquarie Bank, which was not simply that of vendor and purchaser. Macquarie Bank
had, in effect, undertaken to assist AXA to dispose of AXA Health in a way which would
minimise AXA’s capital gains tax exposure. They were to have an ongoing relationship
with respect to any short-term profit on resale. Their relationship was not at arms length.
Their dealings reflected that fact. Those dealings were inevitably coloured by the
disclosures made by Mr McLean in November 2001. From Macquarie Bank’s point of
view the parameters of the transaction were effectively set by knowledge of AXA’s
ambitions for the sale and the state of negotiations with MBF. Mr McLean’s motivation
may have been to benefit AXA, and Macquarie Bank may also have had that intention.
Indeed, that is the point. The transaction was designed to enable Macquarie Bank to
obtain fees for services, not to acquire an asset. The negotiations concerning AXA’s
participation in any profit on resale suggested a perception that Macquarie Bank’s offer
might not reflect market price.

Orders

I would allow the appeal and set aside the orders below. I would order that the
application be dismissed with consequential costs orders in respect of the proceedings
below and on appeal.

19781 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Dowsett J)

Edmonds and Gordon JJ.

Introduction

The respondent, AXA Asia Pacific Holdings Ltd, disposed of its shares in a
wholly-owned subsidiary, AXA Health Insurance Pty Ltd, on 30 August 2002 for
$570,000,000 pursuant to agreements entered into on 4 June 2002. The trial judge held
that under Subdiv 124-M of the Income Tax Assessment Act 1997 (Cth) (the ITAA 1997),
AXA was entitled to partial roll-over relief for $383,125,293 of the capital proceeds on
the disposal of its shares in AXA Health.

There were 3 substantive issues before the trial judge:

(1) did AXA deal at arms length with Macquarie Bank Ltd? A subsidiary of
Macquarie Bank (Macquarie Health Funding Pty Ltd) as nominee for Macquarie
Health Acquisitions Pty Ltd) acquired the shares in AXA Health;

(2) if yes to (1), did Pt IVA of the Income Tax Assessment Act 1936 (Cth) (the ITAA
1936) operate to deny AXA the partial roll-over relief? and

(3) did the Commissioner of Taxation err in assessing penalty tax?
The trial judge (AXA Asia Pacific Holdings Ltd v FCT (2009) 77 ATR 829) found that
AXA and Macquarie Bank dealt with each other at arms length and Pt IVA of the ITAA
1936 did not apply. Given the findings of the trial judge, it was unnecessary for his
Honour to consider the third substantive issue.

On appeal, the Commissioner challenged both of the trial judge’s findings – that AXA
and Macquarie Bank dealt with each other at arms length and that Pt IVA did not apply.
The parties accepted that consideration of the third issue (penalties) should be deferred
until the substantive appeal was determined. First, the Commissioner submitted that the
trial judge erred in his interpretation of s 124-780(4) of the ITAA 1997 and in his
conclusion that AXA and Macquarie Health Funding dealt with each other at arms
length: appeal grounds 1-4. In broad terms, the Commissioner submitted that AXA did
not deal at arms length with Macquarie Bank because “Macquarie Bank’s role in
structuring the transactions, so as to minimise the capital gains tax payable by AXA,
meant that Macquarie Health Funding (which was a subsidiary of Macquarie Bank
created for the purposes of the transactions) did not deal with AXA at arms length.”

Next, if the Commissioner’s appeal against the trial judge’s finding that AXA and
Macquarie Health Funding dealt with each other at arms length was dismissed, the
Commissioner submitted that the trial judge erred in finding that Pt IVA of the ITAA
1936 did not apply to disallow the partial roll-over relief because AXA obtained a “tax
benefit” within the meaning of s 177C(1)(a) of the ITAA 1936 and, further, having regard
to the matters set out in s 177D(b) of the ITAA 1936, it would be concluded that one of
the persons who entered into or carried out the scheme or any part of the scheme did so
for the purpose of enabling AXA to obtain that tax benefit in connection with the
scheme: appeal grounds 5-15.

For the reasons that follow, we would dismiss the appeal. The trial judge was correct
to conclude that AXA and Macquarie Health Funding dealt with each other at arms
length and that AXA did not obtain a tax benefit within the meaning of s 177C(1)(a) of
the ITAA 1936.

Facts

No ground of appeal challenged the findings of fact by the trial judge. What follows is
a summary of the facts set out (at ATR 833-865 [2]-[81]; ATC 10,467-10,469 [2]-[81]) of
his Honour’s reasons for decision.

AXA Health, a wholly owned subsidiary of AXA, inter alia, operated a profitable
health insurance business trading as “HBA” in Victoria and “Mutual Community” in

198 FEDERAL COURT OF AUSTRALIA [(2010)

South Australia. By the end of 2000, a committee established to conduct a strategic
review of AXA’s health insurance business determined that AXA Health’s position was
unsustainable in the long-term. A number of courses open to AXA were considered,
including the acquisition of another health insurance business or businesses (Medical
Benefits Fund of Australia Ltd (MBF), Medibank Private or the acquisition of a
combination of smaller health insurers), a strategic alliance with MBF or, if none of
those proved viable, the divestment of AXA Health. The committee’s chairman (Mr Les
Owen, AXA’s group chief executive (Mr Owen)) concluded the most propitious options
were a merger with MBF or the sale of the existing business to MBF.

In early 2001, AXA engaged Macquarie Bank (through its advisory arm (Macquarie
Bank advisory)) to assist it in an approach to MBF. Despite negotiations in the first half
of 2001 between AXA and MBF about the possible merger of MBF with the business of
AXA Health, the negotiations had concluded unsuccessfully by July 2001.

On 27 July 2001 and again on 13 August 2001, MBF made “an indicative proposal” to
AXA to acquire AXA Health. On 13 August, the headline price was increased to
$535,000,000. Under both proposals, the sum to be paid at settlement was $250,000,000
with the balance to be paid by way of vendor finance. AXA’s board considered the
proposal on 29 August 2001. MBF’s offer was significantly below AXA’s valuation of
AXA Health of $675,000,000 comprising a “stand alone” valuation of $570,000,000 and
an “agreed synergies” valuation of $105,000,000. The AXA board were told that the tax
effects (a capital gains tax liability of approximately $140,000,000 and revenue loss trade
offs) would impact on the net proceeds. The board resolved to give MBF a short period
of exclusivity it had requested (subject to appropriate milestones) to move the parties
toward a satisfactory price and funding structure.

At about the same time, Macquarie Bank advisory was assisting AXA to locate other
domestic and foreign sources of interest in AXA Health including meeting with
representatives of British United Provident Insurance Ltd (BUPA) of the United
Kingdom. Ms Marianne Birch, a division director with Macquarie Bank advisory
(Ms Birch), was one of the group who met with BUPA. Macquarie Bank advisory
ultimately concluded that there was little or no domestic or foreign interest in the
acquisition of AXA Health. By October 2001, Macquarie Bank advisory was
investigating 2 further options – an initial public offering and a leveraged buy-out of
AXA Health. The prospect of a leveraged buy-out had been raised by Ms Susan Foster,
AXA’s strategic projects manager (Ms Foster). Macquarie Bank advisory contacted
another arm of Macquarie Bank to assist – the principal transactions group (Macquarie
Bank PTG). Mr Richard Facioni, an executive director of Macquarie Bank (Mr Facioni),
was the head of Macquarie Bank PTG.

On 21 November 2001, Macquarie Bank PTG made a presentation to AXA. Mr Owen,
Ms Foster and Mr Andrew Penn, AXA’s general manager of operations (Mr Penn),
attended. (Mr Penn was the executive with overall responsibility of disposing of AXA
Health on the most favourable terms). The leveraged buy-out proposed by Macquarie
Bank PTG was that AXA Health be sold “into an unlisted, leveraged structure.” A
company would be established to acquire AXA Health in which Macquarie Bank and
other investors would hold the equity. Debt finance of $300,000,000 would be obtained.
The leveraged buy-out proposal was to be conducted in parallel with a trade sale to MBF
so that if AXA’s negotiations with MBF succeeded, AXA Health could be on-sold from
the Macquarie Bank structure to MBF. (In fact, in the first week of November 2001,
AXA and MBF were still seeking to effect a sale of AXA Health to MBF. Mr Owen of
AXA granted MBF a further period of exclusivity until 31 December 2001).

The AXA board met on 30 November 2001. Mr Penn told the board that except for a

19981 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Edmonds and Gordon JJ)

sale to MBF, the prospects of disposing of AXA Health for a price in line with AXA’s
expectations were limited. The board resolved to continue discussions with MBF and
progress investigations into the initial public offering and the leveraged buy-out options
to determine price and feasibility.

Macquarie Bank PTG prepared a memorandum dated 7 December 2001 which
proposed the creation of a new entity “BidCo” to acquire AXA Health. The
memorandum also addressed, inter alia, the advantages and risks to Macquarie Bank of
such a transaction. Although the scrip-for-scrip exchange was not mentioned, the trial
judge concluded that the evidence left “little doubt that at least someone in Macquarie
Bank PTG had it in mind to structure the transaction in such a way that capital gains tax
would not be payable.” On 9 December 2001, a form of the memorandum (in the same
terms as the one prepared on 7 December 2001) was sent to the chief executive officer of
Macquarie Bank and to the head of the investment banking group within Macquarie
Bank.

The AXA board met again on 20 December 2001. The board considered a paper
(contributed to by Macquarie Bank advisory) which compared options for the disposal of
AXA Health. The board endorsed a recommendation that AXA maintain a tough line
with MBF and not to extend exclusivity beyond 31 December 2001 unless there was
agreement on value and if not, then pursue the initial public offering/leveraged buy-out
without precluding ongoing discussions with MBF. A “Chinese wall” was in place
between Macquarie Bank advisory and Macquarie Bank PTG in relation to the disposal
of AXA Health.

During January 2002, a number of events occurred. On 2 January 2002 (immediately
after the exclusivity period provided to MBF had expired), Macquarie Bank advisory
provided Mr Penn with a table setting out the net present value of the various options
then potentially available for the sale of AXA Health. The tax payable by AXA was one
of the economic implications. On 22 January 2002, Macquarie Bank PTG prepared a
confidential memorandum which identified the key steps in its proposal for an leveraged
buy-out of AXA Health. The memorandum again referred to the idea of Macquarie Bank
establishing BidCo, which would acquire AXA Health. The memorandum was the first
documentary reference for the balance of the consideration (after the deposit) to be
convertible shares in BidCo. BidCo ultimately became Macquarie Health Acquisitions.

On 16 January 2002, Macquarie Bank advisory met again with representatives of
BUPA. Mr Owen was told of BUPA’s interest. He authorised Macquarie Bank advisory
to raise with BUPA the possibility of BUPA participating in the leveraged buy-out
proposed by Macquarie Bank PTG, or of BUPA making a bid for the outright acquisition
of AXA Health. BUPA told Ms Birch of Macquarie Bank advisory that BUPA could not
finance an outright acquisition of AXA Health but was keen to participate in a leveraged
buy-out by contributing equity. Ms Birch told the BUPA representative that Macquarie
Bank advisory could not deal with BUPA about equity participation in a leveraged
buy-out (because of the “Chinese Wall”) and gave the representative Mr Facioni’s
telephone number. Mr Facioni provided BUPA with a detailed briefing paper which, inter
alia, summarised the financial position of AXA Health, the proposed structure for the
leveraged buy-out and provided that Macquarie Bank would be retained to act as
financial advisors to BidCo and would receive fees for financial advice and debt and
equity arranging.

At the same time, AXA was still considering a sale of AXA Health to MBF. On
11 February 2002, Mr Penn advised Mr Owen his preference was for a direct sale to
MBF rather than the leveraged buy-out proposal. Macquarie Bank PTG spent February
preparing drafts of an “indicative bid” for AXA Health.

200 FEDERAL COURT OF AUSTRALIA [(2010)

On 27 February 2002, AXA’s board considered a paper prepared by Mr Owen. The
paper informed the board that progress on both options (direct sale to MBF and the
leveraged buy-out) was continuing slowly and that AXA would continue with the
strategy of working with both parties. The board minutes record that it appeared that the
leveraged buy-out team intended to realise the investment through a subsequent initial
public offering and AXA would seek to ensure participation in any excess over the offer
from the leveraged buy-out team.

On 1 March 2002, Macquarie Bank made a “non-binding” bid for AXA Health,
described as an “unconditional underwriting.” The bid’s form was devised by Macquarie
Bank PTG and other groups in Macquarie Bank, but not Macquarie Bank advisory. AXA
had no input into the structure or form of the bid. Letters of support from third party
investors were included in the bid. The bid contained, inter alia, provisions that:

(1) Macquarie Bank was not a strategic acquirer nor long-term owner of AXA
Health;

(2) Macquarie Bank would undertake the acquisition through a Macquarie Bank
special purpose company – Macquarie Health Acquisitions;

(3) Macquarie Bank would assume the risk of on-selling AXA Health either by
on-sale to a private equity consortium or an initial public offering;

(4) AXA was to receive a minimum price of $550,000,000 plus up to a further
$10,000,000 if AXA Health was subsequently sold by way of an initial public
offering within 12 months;

(5) consideration of $550,000,000 would be paid by a $65,000,000 non-refundable
deposit plus $485,000,000 vendor financing in the form of converting vendor
shares in AXA Health;

(6) AXA would grant Macquarie Bank a period of exclusivity during which time
AXA would undertake not to enter into discussions with third parties in relation
to a trade sale or initial public offering of AXA Health; and

(7) an underwriting fee of $10,000,000 plus stamp duty on share transfers would be
payable by AXA to Macquarie Bank.

On 8 March 2002, AXA responded to the bid. AXA gave, to adopt the words of the
trial judge, “limited, provisional and somewhat cautious support to the Macquarie Bank
bid.” AXA required a number of issues to be addressed (including that the voting and
distribution entitlements of the vendor shares had to be increased) and proposed a
number of other modifications (including a base price of $560,000,000 and a requirement
that AXA share, to the extent of 50%, in any profit made from the on-sale of AXA Health
under certain conditions).

After discussions between Macquarie Bank and the proposed investors, on
16 April 2002 Macquarie Bank submitted a revised non-binding bid for AXA Health. It
followed the same general approach as the initial bid. The total price was increased to
$560,000,000 made up of $65,000,000 cash deposit and convertible vendor shares to the
value of $495,000,000, AXA was to be entitled to a share of 50% (reducing pro-rata to
30% over 12 months) of any profit made from any on-sale of AXA Health for more than
$575,000,000 (net of costs) within 12 months and, subject to negotiation, AXA would
have 25% of the voting power at a general meeting of Macquarie Health Acquisitions
and would have one seat on the board.

On 17 April 2002, the AXA board considered 2 options – the sale to MBF and
Macquarie Bank’s non-binding bid. The scrip-for-scrip roll-over provisions in the
Macquarie Bank bid were discussed at this meeting. The board resolved that the

20181 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Edmonds and Gordon JJ)

Macquarie Bank bid should be progressed to a heads of agreement and that MBF should
be informed that although AXA would continue to negotiate with MBF, it was no longer
the preferred buyer.

On 19 April 2002, AXA responded to the “key commercial issues” of Macquarie
Bank’s revised bid. AXA’s response included seeking to extend the profit share in the
event of the initial public offering or trade sale to 18 months, and aggregating the
underwriting fee and stamp duty at $10,000,000. Negotiations of the “key commercial
issues” continued on 22, 24 and 26 April 2002.

On 29 April 2002, representatives from Macquarie Bank advisory (representing AXA),
Macquarie Bank PTG and BUPA met for the first and only time. The file note of the
meeting records, inter alia, that AXA expressed concern that it would be “embarrassed
by an on-sale through an initial public offering at a significant profit” and further
questioned what benefit it would obtain from paying large fees to Macquarie Bank to sell
AXA Health to BUPA. The filenote further recorded that AXA would seek “appropriate
profit share terms” to address these concerns.

On the same day, 29 April 2002, AXA extended the period of exclusivity to Macquarie
Bank to 14 May 2002. As a result, AXA could negotiate with MBF but not with any
other prospective acquirer, including BUPA. The concerns of AXA concerning BUPA’s
larger equity stake in the acquisition of AXA Health were again expressed in an e-mail
from Mr Owen on 7 May 2002, where he stated that AXA would “not be at all happy” if
a trade sale to BUPA took place and that if BUPA were “changing their position in the
whole business” that AXA should be talking with them directly. Mr Green responded on
8 May 2002. The issue was not addressed.

On 3 May 2002, AXA’s solicitors produced a first draft of the heads of agreement.
The parties to the agreement were to be AXA, Macquarie Bank, Macquarie Health
Acquisitions, and Macquarie Health Holdings Pty Ltd.

On 8 May 2002, Mr Bob Herbert of Macquarie Bank sent an e-mail to others within
Macquarie Bank attaching a draft transaction description of how AXA Health was to be
acquired. The document described, in some detail, the proposed arrangement including
aspects that had been negotiated with AXA and aspects that had been negotiated with
BUPA. The document included a diagram that set out the “acquisition structure to
facilitate a scrip-for-scrip bid for AXA Health,” explaining the details of the companies
and their relationship.

On the same day, 8 May 2002, Mr Herbert wrote another memorandum jointly with
Mr Greg Pahek (an executive of Macquarie Bank PTG) seeking approval for the
establishment of 3 special purpose companies required to complete the acquisition of
AXA Health. These companies were Macquarie Health Holdings, Macquarie Health
Acquisitions and Macquarie Health Funding. Macquarie Health Holdings was to have
100 ordinary shares of which 99 were to be held by Macquarie Bank and one was to be
held by BDW Nominees Pty Ltd (a special purpose company owned by Macquarie
Bank’s legal advisors, Blake Dawson Waldron). Macquarie Health Acquisitions was to
have 100 ordinary shares of which 99 were to be held by Macquarie Bank and one was
to be held by Macquarie Health Holdings. Macquarie Health Funding was to be wholly
owned by Macquarie Health Acquisitions. The memorandum included another diagram
explaining the structure of the proposed acquisition. The companies were duly
incorporated on 10 May 2002.

Between 10 and 20 May 2002, further draft heads of agreement were being prepared
by AXA’s solicitors. During this time, the agreement was renamed the “underwriting
agreement.” On 20 May 2002, a new warranty was inserted to be given by Macquarie
Bank that Macquarie Health Holdings would not be a wholly owned subsidiary of

202 FEDERAL COURT OF AUSTRALIA [(2010)

Macquarie Bank. On 22 May 2002, Macquarie Bank and BUPA Australia Pty Ltd
(BAPL, the wholly owned subsidiary of BUPA) procured the incorporation of a company
called MB Health Holdings Pty Ltd. By 22 May 2002, the price being offered by
Macquarie Bank had risen to a total of $595,000,000, comprising of a deposit of $57.6
million and vendor shares in Macquarie Health Acquisitions of $537.4 million.

Meanwhile, AXA continued to deal with MBF as a possible (though not a preferred)
buyer.

On 27 May 2002, Mr Facioni put the proposal for the acquisition of AXA Health (the
proposition summary) to senior executives in Macquarie Bank for approval. The
proposition summary provided that the transaction would occur in 4 stages. The first
stage was the establishment of the transaction entities Macquarie Health Funding
(described as “Fundco”), Macquarie Health Holdings, Macquarie Health Acquisitions
and MB Health Holdings (described as “NewCo”), which had already occurred: see at
[85]-[86] above. The proposition summary provided that MB Health Holdings’s role
would be to acquire AXA Health either by the exercise of a put option by AXA to
provide AXA with a “fallback” method of completing the sale of AXA Health, or, in the
event that such an option was not exercised, by the acquisition of Macquarie Health
Funding from Macquarie Health Acquisitions. MB Health Holdings would also have the
task of raising debt funding from the banks, the equity funding from Macquarie Bank
and BAPL, to fund the acquisition of AXA Health.

The second stage was the “announcement,” which proposed that Macquarie Bank
would enter into a series of agreements which would “evidence the various parties’
intentions in respect of AXA Health.” These agreements were a binding conditional
underwriting agreement with AXA, a binding equity participation agreement with BUPA
and BAPL, 2 put options granted by BAPL to Macquarie Bank, one call option granted
by Macquarie Bank to BAPL and credit-approved commitments from 2 named banks.

The third stage was described as “financial close” which described the execution of
the sale documentation to acquire AXA Health and was divided into 4 categories,
namely, capitalisation of the structure, the acquisition of AXA Health, the Macquarie
Bank sell-down, and banking arrangements.

The final stage was “completion” which described the procedures necessary to settle
the sale. The proposition summary further outlined, inter alia, the transaction’s risks and
benefits to Macquarie Bank. The proposition summary was approved by the executives
subject to 14 conditions.

On 30 May 2002, Macquarie Bank, BAPL, MB Health Holdings and BUPA entered
into an “equity participation agreement.” By this agreement, Macquarie Bank and BAPL
agreed to establish a consortium to own and operate AXA Health, and that MB Health
Holdings would be the vehicle through which this would occur. Macquarie Bank and
BAPL would each have a 50 per cent interest in MB Health Holdings, to be adjusted by
factors such as “any sell-down” by Macquarie Bank under the agreement. Under the
equity participation agreement, BAPL granted Macquarie Bank 2 put options and
Macquarie Bank granted BAPL one call option in respect of Macquarie Bank’s shares in
MB Health Holdings.

On the same day, 30 May 2002, Macquarie Bank forwarded its proposed offer for the
sale of AXA Health to AXA. As the trial judge’s reasons for decision explained (at ATR
858-859 [61]-[62]; ATC 10,489 [61]-[62]):

[61] Also on 30 May 2002 (which was a Friday), Macquarie Bank forwarded its
“proposed offer” for the sale of AXA Health to [AXA], attaching agreements in executable
form, in which it made its preparedness to execute those agreements conditional upon
[AXA] confirming in writing, by 7 pm on Monday, 3 June 2002, that it ([AXA]) had ceased

20381 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Edmonds and Gordon JJ)

discussions and negotiations with all other prospective bidders, including MBF. Indeed,
Macquarie Bank’s letter of 30 May stated that, absent [AXA] indicating its intention to
“proceed with [the] proposal” by 7 pm on 3 June, the proposal would be withdrawn.
[AXA’s] sub-committee met on the afternoon of 3 June 2002. It considered a further letter
of that day from Macquarie Bank which pointed out certain benefits which the Macquarie
Bank proposal involved for [AXA], and which extended the 7 pm deadline for acceptance to
midnight. On the same day, Mr Owen wrote to Mr Conde indicating a preparedness to sign
an agreement for the sale of AXA Health to MBF that day, so long as certain conditions
could be met. Mr Owen spoke to Mr Conde by telephone on the evening of 3 June, in the
course of which it became clear that [AXA] would be unable to conclude an agreement with
MBF. Mr Owen so informed the sub-committee at about 9.15 pm. The sub-committee then
decided that [AXA] should accept the offer from Macquarie Bank.

[62] Macquarie Bank was informed of that decision. Negotiations between [AXA] and
Macquarie Bank re-commenced at about 11.30 pm on 3 June 2002, an in-principle
agreement was reached at about 9 am on 4 June 2002, the transaction documents were
circulated for comment at about 1 pm, and the documents were executed at about 8 pm. The
transaction documents so executed were the underwriting agreement, to which the parties
were [AXA], Macquarie Bank, Macquarie Health Acquisitions and Macquarie Health
Holdings, and an “equity sell down agreement,” to which the parties were [AXA],
Macquarie Bank and Macquarie Health Acquisitions.

The underwriting agreement provided that on the completion date (30 August 2002),
AXA would exchange, and Macquarie Health Acquisitions would buy, the shares in
AXA Health: cl 4.1 of the underwriting agreement. In exchange for the shares in AXA
Health, Macquarie Health Acquisitions would pay $57.6 million in cash to AXA and
Macquarie Health Acquisitions would issue to AXA 537.4 million shares with a value of
$537.4 million, totalling $595,000,000: cl 4.2 of the underwriting agreement. This
amount was later adjusted pursuant to the agreement to $570,000,000. The underwriting
agreement further provided for a put option to be granted to AXA (cl 10(a), Sch 3) and
for Macquarie Bank and Macquarie Health Holdings to grant AXA a call option over
their ordinary shares in Macquarie Health Acquisitions (cl 11, Sch 4). These options
were only be exercised if the “vendor shares” (convertible ordinary shares in the capital
of Macquarie Health Acquisitions) were converted and would expire if not exercised
within 2 months of conversion or upon the exercise of the put option (whichever
occurred first). The agreement further described the vendor shares, redeemable
preference shares and the voting rights in Macquarie Health Acquisitions that the holder
of the vendor shares would obtain. Finally, the underwriting agreement provided, inter
alia, that AXA agreed to pay Macquarie Bank an “underwriting fee” of $5,000,000 on
the completion date.

Also on 4 June 2002, AXA, Macquarie Bank and Macquarie Health Acquisitions
executed the equity sell down agreement. The agreement enabled AXA to participate in
such profit that may be made by the on-sale of AXA Health, while at the same time
allowing Macquarie Bank a return on its investment. Under this agreement, AXA agreed
to pay Macquarie Bank an “equity sell-down fee” of $5,000,000 in consideration for
Macquarie Bank procuring Macquarie Health Acquisitions to satisfy its obligations under
the agreement.

Between 4 June 2002 and 30 August 2002, the parties engaged in “intense
negotiations” and entered into a number of further agreements to complete the
transaction. The trial judge described the period immediately prior to the completion date
(30 August 2002) as follows (at ATR 863-864 [76]-[79]; ATC 10,493-10,494 [76]-[79]):

[76] It seems that the last week before execution of the transaction documents was a very
busy time for all concerned. On 25 August 2002, the parties on the BUPA side of Macquarie
Bank, as it were, executed a deed to amend the equity participation agreement. In relation to

204 FEDERAL COURT OF AUSTRALIA [(2010)

Macquarie Bank’s shareholding in MB Health Holdings, BAPL granted to Macquarie Bank
a put option and Macquarie Bank granted to BAPL a call option, the exercise of which in
each case was tied to the exercise by [AXA] of its right to convert its vendor shares in
Macquarie Health Acquisitions, the exercise by [AXA] of its put option over those shares, or
the expiry of that put option, as the case required. On the same day, those parties executed a
shareholders’ deed to regulate the operation and governance of MB Health Holdings.

[77] On 26 August 2002 [AXA], Macquarie Bank, Macquarie Health Acquisitions and
Macquarie Health Holdings by deed amended the underwriting agreement. One of the
amendments was to replace cl 4.1 with the following:

4.1 Exchange of Shares

(a) The parties agree that on the Completion Date, AXA will exchange and
Macquarie Health Acquisitions will buy the Shares for the Purchase Price
free of Encumbrances and other third party rights.

(b) Macquarie Health Acquisitions may, on Completion, direct AXA to
execute an instrument of transfer of the Shares to Newco or other
nominee company.

(c) Where Macquarie Health Acquisitions gives a direction in accordance
with clause 4.1(b), the duly executed instruments of transfer to be
delivered by AXA on Completion must be in favour of Newco or other
nominee company.

On the same day, [AXA], Macquarie Bank, Macquarie Health Acquisitions and Macquarie
Health Funding by deed replaced the equity sell down agreement. At least to the extent
relevant for present purposes, what I have written at [74] may likewise be said about the
deed of 26 August (save for the fact that “NewCo” had by then been interposed in the form
of Macquarie Health Funding, and was itself a party to the deed). On the same day, [AXA],
Macquarie Bank, Macquarie Health Acquisitions, Macquarie Health Holdings and the
National Mutual Life Association of Australasia Ltd executed the covenant agreement. It
contained a range of provisions calculated to govern the parties’ obligations in the
intervening period while the commercial business of AXA Health was effectively under the
control of Macquarie Bank, but might (depending on how matters turned out) ultimately be
returned to [AXA]. …

[78] On 29 August 2002, Macquarie Health Acquisitions and Macquarie Health Funding
entered into what was described as “Macquarie Health Acquisitions undertaking”. By it,
Macquarie Health Acquisitions agreed to direct [AXA] to execute an instrument of transfer
of its shares in AXA Health to Macquarie Health Funding, and agreed to pay [AXA] the
purchase price for those shares. Macquarie Health Acquisitions assigned to Macquarie
Health Funding certain benefits, or expected benefits, arising under detailed provisions of
other instruments then executed or expected to be executed. The consideration passing from
Macquarie Health Funding to Macquarie Health Acquisitions was an agreement to issue to
Macquarie Health Acquisitions, upon completion under the underwriting agreement,
240,000,000 ordinary shares in Macquarie Health Funding (of a value, it seems, of
$240,000,000). Macquarie Health Funding also agreed to pay to Macquarie Health
Acquisitions, on the “settlement date,” the sum of $330,000,000, described as “deferred
consideration.” The “settlement date” was the earlier of 2 dates, one of which was the date
specified by [AXA] for the conversion of its vendor shares in Macquarie Health
Acquisitions in a notice of intention to convert (if one were given) in that behalf. As will
appear, the combination of these sums ($240,000,000 and $330,000,000) represented the
agreed sale price of AXA Health ($570,000,000).

[79] On 29 August 2002, Macquarie Health Acquisitions and MB Health Holdings
executed an agreement called “consortium acquisition agreement.” A condition precedent to
the operation of that agreement was that [AXA] was no longer able to exercise the put
option granted to it by MB Health Holdings in relation to its vendor shares in Macquarie
Health Acquisitions. The terms of the put option were such that, if [AXA] had given a
notice to convert the vendor shares into ordinary shares, it could no longer be exercised. The

20581 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Edmonds and Gordon JJ)

effect of these provisions was, therefore, that the giving by [AXA] of a notice of conversion
in relation to the vendor shares would bring the consortium acquisition agreement into
operation. Under that agreement, Macquarie Health Acquisitions agreed to sell and MB
Health Holdings agreed to buy all of the issued share capital in Macquarie Health Funding.

On 30 August 2002, completion of the transaction took place. Macquarie Health
Acquisitions directed AXA to execute an instrument of transfer of its shares in AXA
Health to Macquarie Health Funding. The transfer occurred and Macquarie Health
Acquisitions paid AXA the sum of $57,000,000 in cash and issued 513,000,000 $1
convertible preference shares to AXA. Macquarie Bank and Macquarie Health Holdings
granted to AXA call options over the ordinary shares held by them in Macquarie Health
Acquisitions and MB Health Holdings granted to AXA a put option over the convertible
vendor shares. AXA duly paid the underwriting fee of $5,000,000 to Macquarie Bank.
Macquarie Bank subscribed 57,000,000 $1 redeemable preference shares in Macquarie
Health Acquisitions and paid $57,000,000 to Macquarie Health Acquisitions for that
issue.

Finally, on 7 February 2003, AXA gave notice of the conversion of its vendor shares
in Macquarie Health Acquisitions (effective on 28 February 2003), and further gave
notice that it would exercise the call options granted by Macquarie Bank and Macquarie
Health Holdings. As explained by the trial judge (at ATR 864-865 [81]; ATC 10,494
[81]):

[The conversion of AXA’s vendor shares] triggered the operation of the consortium
acquisition agreement as between Macquarie Health Acquisitions and MB Health Holdings
and the “Macquarie Health Acquisitions undertaking” as between Macquarie Health
Acquisitions and Macquarie Health Funding. Macquarie Health Acquisitions’s shareholding
in Macquarie Health Funding was acquired by MB Health Holdings for the sum of
$240,000,000, and Macquarie Health Funding paid Macquarie Health Acquisitions the
“deferred consideration” which, after adjustment, amounted to $317.85,000,000. In the
result, Macquarie Health Acquisitions’s only asset was cash in the sum of $557.85,000,000.
Macquarie Health Funding, which owned all the shares in AXA Health, was in turn owned
by MB Health Holdings.

Did AXA and Macquarie Bank deal at arms length?

Legislative framework and legal principles

The assessable income of a taxpayer includes “your net capital gain (if any) for the
income year”: s 102-5 of the ITAA 1997. A capital gain occurs if a CGT event happens:
s 102-20 of the ITAA 1997. In the present appeal, it was common ground that CGT event
A1 occurred on the disposal by AXA of its shares in AXA Health in the year ended
31 December 2002, that the disposal proceeds ($570,000,000) exceeded the cost base of
the AXA Health shares and that part of the consideration for the disposal ($513,000,000)
was given by way of shares in Macquarie Health Acquisitions.

Subdivision 124-M of the ITAA 1997 provides for CGT roll-over relief for
shareholders in a company where the shares in one company are exchanged for shares in
another company: see, in particular, s 124-780 of the ITAA 1997 and the relevant
extrinsic materials (explanatory memorandum, New Business Tax System (Capital Gains
Tax) Bill 1999 (Cth) at [2.1] and the Second Reading Speech to the New Business Tax
System (Capital Gains Tax) Bill 1999 (Cth): Commonwealth, Parliamentary Debates,
House of Representatives, 25 November 1999, 12611 (Peter Costello)).

In the present case, the trial judge concluded that AXA was permitted to defer the
making of the capital gain on $513,000,000 of the capital proceeds until a later CGT
event because of the “scrip-for-scrip” roll-over: s 112-105 of the ITAA 1997.

206 FEDERAL COURT OF AUSTRALIA [(2010)

100

101

The effect of the CGT roll-over is to permit the capital gain made on the disposal of
the CGT asset (the original shares) to be deferred until disposal of the replacement
shares: explanatory memorandum, New Business Tax System (Capital Gains Tax) Bill
1999 (Cth) at [2.2]. The rules for determining whether there was a “scrip-for-scrip”
roll-over are set out in Subdiv 124-M of the ITAA 1997. The central provision is
s 124-780. A number of conditions need to be satisfied to obtain CGT roll-over relief.
Section 124-780(4) provides that additional conditions (set out in s 124-780(5)) must be
satisfied “if the original interest holder and an acquiring entity did not deal with each
other at arms length.”

Before turning to consider the issues on appeal, it is important to note that 2 matters
were not in dispute at first instance and accordingly were not the subject of appeal. The
Commissioner accepted that the relationship between AXA and Macquarie Bank was an
arms length one and, further, accepted that in the broad negotiation of the terms of the
transactions by which shares in AXA Health passed to Macquarie Health Funding, AXA
and Macquarie Bank dealt with each other at arms length. At trial and on appeal, the only
issue was whether AXA (the original interest holder) and Macquarie Bank (on behalf of
Macquarie Health Funding the acquiring entity) dealt with each other “at arms length.” If
they did deal at arms length, AXA was entitled to defer the capital gain to a later CGT
event. If they did not, it was common ground that AXA would not be entitled to roll-over
relief and would be required to include the whole of the capital gain in its assessable
income in the 2002 year.

At first instance, the trial judge held that AXA and Macquarie Health Funding dealt
with each other at arms length within the meaning of s 124-780(4) of the ITAA 1997. On
appeal, the Commissioner submitted that the trial judge erred in his interpretation of
s 124-780(4) of the ITAA 1997 and in his conclusion that AXA and Macquarie Health
Funding dealt with each other at arms length. In particular, the Commissioner submitted
that AXA did not deal at arms length with Macquarie Bank because “Macquarie Bank’s
role in structuring the transactions so as to minimise the capital gains tax payable by
AXA, meant that Macquarie Health Funding (which was a subsidiary of Macquarie Bank
created for the purposes of the transactions) did not deal with AXA at arms length.” In
our view, the trial judge was correct to reject that submission and appeal grounds 1-4
should be dismissed.

Any assessment of whether parties were dealing at arms length involves “an
assessment [of] whether in respect of that dealing they dealt with each other as arms
length parties would normally do, so that the outcome of their dealing is a matter of real
bargaining”: Trustee for Estate of AW Furse No 5 Will Trust v FCT (1990) 21 ATR 1123
at 1132; 91 ATC 4007 at 4014-4015 per Hill J. The reference in Furse to “real
bargaining” is significant. It focuses on actual dealing between the parties: see also Re
Hains; Barnsdall v FCT (1988) 19 ATR 1352; 88 ATC 4565; 81 ALR 173. That is not
surprising. It is the same mental process as that described by Griffith CJ in Spencer v
Commonwealth (1907) 5 CLR 418 at 432.

The question of whether parties dealt with each other at arms length in respect of a
particular dealing is one of fact in each case: Granby Pty Ltd v FCT (1995) 30 ATR 400
at 403-404; 95 ATC 4240 at 4243-4244; 129 ALR 503 at 507. What is required is that
“parties to a transaction have acted severally and independently in forming their
bargain”: Granby (at ATR 403-404; ATC 4243-4244; ALR 507). Put another way, it
requires consideration of how “unrelated parties, each acting in his or her own best
interest, would carry out a particular transaction”: Australian Trade Commission v WA
Meat Exports Pty Ltd (1987) 7 AAR 248 at 252; 75 ALR 287 at 291.

Consistent with those principles, there is no presumption that parties at arms length

20781 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Edmonds and Gordon JJ)

102

103

104

105

106

107

dealt with each other at arms length: Hains and Furse (at ATR 1132; ATC 4014-4015).
Parties may be at arms length generally yet not deal with each other at arms length in
respect of a particular matter: Re RAL and FCT (2002) 50 ATR 1076 at 1094-1095
[45]-[51]; 2002 ATC 109 at 124-126 [45]-[51]. So, for example, even where parties to a
transaction are at arms length, they will not “be dealing with each other at arms length in
a transaction in which they collude to achieve a particular result, or in which one of the
parties submits the exercise of its will to the discretion of the other, perhaps, to promote
the interests of the other”: Granby (at ATR 403-404; ATC 4243-4244; ALR 507).

Similarly, where one party to a transaction seeks only an overall result and is
indifferent to the outcome of a particular aspect on which the statute focuses, the parties
will be found not to have dealt with each other at arms length on that particular aspect:
Collis v FCT (1996) 33 ATR 438 at 443; 96 ATC 4831 at 4837. In Collis, there was a
question as to whether a vendor (the taxpayer) and purchaser of land had dealt at arms
length in connection with the signing of 2 contracts of sale in relation to 4 parcels of land
which had been sold at auction in a single bid. The purchaser who made the single bid
for all blocks did not inquire as to why the contracts were apportioned between the
blocks in the manner proposed by the taxpayer. Jenkinson J considered that this failure to
inquire suggested “indifference” on the part of the purchaser such as to indicate that the
dealing was not at arms length. The taxpayer in Collis argued that not all arms length
dealings involve a discussion or inquiry as to price (using an analogy of purchasing items
of stock in a food store) and that the absence of such discussions or inquiries did not
suggest indifference by the taxpayer. His Honour rejected that submission, noting that (at
ATR 443; ATC 4837): “A parcel of land is not ordinarily dealt with in commerce as is a
can of beans in a food store.”

In Baxter v FCT (2002) 51 ATR 209; 2002 ATC 4917; 196 ALR 519, a sales tax case,
Gyles J held that a lease devised in order to obtain a revenue advantage did not make it
a non-arms length transaction, “no matter how widely that concept is construed” (at
[38]). (Baxter was considered the “most obviously helpful” by the trial judge when
determining whether the transaction was an arms length one: see (at ATR 873-874 [105];
ATC 10,503 [105]) of the trial judge’s reasons for decision).

In this context, one further matter should be noted. At first instance, the Commissioner
submitted that Macquarie Bank and AXA “colluded” to achieve the purpose of
minimising tax independently of, and in addition to, the commercial purposes they were
pursuing. The Commissioner placed particular reliance on ACI Operations Pty Ltd v
Berri Ltd (2005) 15 VR 312 and Granby (at ATR 403-404; ATC 4243-4244; ALR 507).
The trial judge rejected the submission and held that AXA and Macquarie Bank did not
collude to devise a means to avoid the incidence of capital gains tax (or at all): see
(at ATR 873-874 [103]; ATC 10,502 [103]) of the trial judge’s reasons for decision. On
appeal, the Commissioner submitted that he did not consider it necessary to put his
submission “as high as” collusion and that the situation in the present case was “where
you have one party, acting not in its own self-interests but acting in the interests of the
other party, design[ing] a transaction to enable the other party to avoid tax.”

Application of facts to the legal principles

As noted earlier, the Commissioner submitted that Macquarie Bank’s “overriding
objective” was to structure the transaction to further the interests of AXA. In support of
this submission, the Commissioner pointed to the following factual findings and
conclusions:

(1) from the early stages of the bid for AXA Health, Macquarie Bank “had it in
mind” to structure the bid in such a way that capital gains tax would not be
payable: see [70] above;

208 FEDERAL COURT OF AUSTRALIA [(2010)

108

109

110

111

(2) on 17 April 2002, the AXA board discussed the capital gains tax consequences
of proceeding by way of a scrip-for-scrip roll-over: see at [79] above;

(3) that “in all of the evidence in the case, no explanation for a large part of the
consideration flowing to [AXA] in the form of stock, other than to take
advantage of the scrip-for-scrip roll-over provisions, was proffered”: at ATR
867-868 [88]; ATC 10,497 [88] of the trial judge’s the reasons for decision;

(4) that “so far as [AXA was] concerned, more or less from the outset it was aware
that the Macquarie Bank bid was structured so that capital gains tax would not
arise on any resulting transaction” and that “that circumstance was recognised as
an attractive feature of the bid”: at ATR 868 [90]; ATC 10,497 [90] of the trial
judge’s reasons for decision; and

(5) the trial judge “consider[ed] it to be almost self-evident that Macquarie Bank’s
intention was that capital gains tax not be payable by any relevant entity at any
stage of the proposed transactions”: at ATR 868-869 [91]; ATC 10,497-10,498
[91] of the trial judge’s reasons for decision.

Further, the Commissioner pointed to “indicia” that supported this submission, namely
each of the elements of the structure designed to achieve the scrip-for-scrip roll-over
relief. Specifically, the Commissioner pointed to the existence of Macquarie Health
Holdings, the vendor call option granted by Macquarie Bank to AXA over the shares in
Macquarie Health Acquisitions, the call option granted by Macquarie Health Holdings to
AXA over its share in Macquarie Health Acquisitions, and the put option granted by MB
Health Holdings to AXA. The Commissioner submitted, citing Furse, this demonstrated
there was “no real bargaining … because both parties were pushing in the same
direction.”

However, AXA identified several facts and matters that indicated that both parties
were acting in their own interests, or were acting “severally and independently in
forming their bargain” (Granby (at ATR 403-404; ATC 4243-4244; ALR 507). These
circumstances included:

(1) AXA had no input into the structure and form of the initial non-binding bid of
1 March 2002: see at [76] above;

(2) between 8 March 2002 and 29 April 2002, AXA and Macquarie Bank negotiated
on the “key commercial issues” of the non-binding bid, including discussions
about the amount of Macquarie Bank’s underwriting fee and the voting
entitlements associated with vendor shares: see at [77]-[82] above;

(3) on 29 April 2002, at the meeting between Macquarie Bank advisory
(representing AXA), Macquarie Bank PTG and BUPA, AXA expressed concern
about the payment of large fees to Macquarie Bank for no apparent benefit in the
sale to BUPA. At around the same time, AXA expressed concern about BUPA
having a larger equity stake in the acquisition of AXA Health: see at [81] and
[82] above; and

(4) on 27 May 2002, Mr Facioni presented the proposition summary to the
Macquarie Bank senior executives for approval. This document outlined the
transaction risks and benefits to Macquarie Bank in entering into the transaction:
see at [88]-[91] above.

It was accepted by all parties that a feature of the offer put to AXA by Macquarie
Bank was that it could provide AXA with the choice of obtaining scrip-for-scrip roll-over
relief. It was accepted that the evidence was that Macquarie Bank perceived the
availability of roll-over relief as a benefit to AXA and that it would make Macquarie
Bank’s offer more attractive to AXA.

20981 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Edmonds and Gordon JJ)

112

113

114

However, it does not follow that, in making the offer with the intent to attract AXA’s
acceptance, that Macquarie Bank’s structuring of the bid to obtain scrip-for-scrip
roll-over relief was the “over-riding objective” or that, in making the offer, Macquarie
Bank was not acting in its own interests. There were a number of factors or
circumstances identified by AXA (see at [113] above) that indicated that the parties were
acting severally and independently in forming their bargain. The Commissioner’s
submissions ignored the benefits Macquarie Bank would obtain, and the self-interest it
exercised, in the acquisition of AXA Health. Macquarie Bank structured the bid not only
to obtain scrip-for-scrip roll-over relief for AXA, but also in such a way so that
Macquarie Bank could and did charge an underwriting fee. Macquarie Bank further
structured the bid in such a way that it would be able to sell-down its interest in the
equity it had created without putting in cash up-front. As correctly identified by the trial
judge, the transaction did not amount to either collusion or submission of the will of
Macquarie Bank to the wishes of AXA, or vice-versa: see Granby (at ATR 403-404; ATC
4243-4244; ALR 507).

Concerning the Commissioner’s reliance on Collis, we agree with the finding of the
trial judge that the circumstances of this case are different when he stated:

[104] Neither do I accept the Commissioner’s submission that the present is a stronger
case than Collis for the reason that the putative disinterested party (Macquarie Bank)
actively co-operated to achieve the fiscal advantage sought by the putative taxpayer [AXA].
In my view, the present is a different case from Collis. There, the parties, having made their
commercial bargain on the fall of the auctioneer’s hammer, manipulated the legal expression
of that bargain for fiscal purposes. That could only be done by a consensus driven either by
a mutual desire to achieve those purposes or by the submission of the will of one to the
wishes of the other. Here, by contrast, the corporate structure lying behind Macquarie Health
Acquisitions was the doing of Macquarie Bank alone. The architecture of that structure was
integral to the Macquarie Bank offer which [AXA] accepted. It truly reflected the
commercial reality of what was agreed. True it is that that architecture made the Macquarie
Bank bid the more attractive for [AXA], but I cannot, with respect to the Commissioner,
appreciate how that circumstance made the dealing between them other than an arms length
one.

AXA was motivated to sell its business. Macquarie Bank wanted to acquire and
on-sell that business. That the structure through which the acquisition would be achieved
contained features attractive to AXA (including the scrip-for-scrip roll-over) does not
make the transaction a non-arms length transaction. Many agreements negotiated
between parties at arms length involve promises that will provide a benefit to a promisee.
The fact that a purchaser of an asset seeks to obtain, for its own benefit, a collateral
advantage from the purchase transaction (in this case the earning of fees) over and above
the acquisition of the asset, cannot, without more, lead to a conclusion that the parties to
the transaction were not dealing with each other at arms length. There is no evidence that
the purchase consideration did not represent the market value of the asset and the fact
that the vendor (AXA) had the right to participate in any profit arising to the purchaser
(Macquarie Bank) from the onward sale of the asset does not, in our view, reflect any
such perception; on the contrary, it reflects the bargaining power which the vendor
(AXA), acting in its own best interest, brought to bear on the overall architecture of the
transaction.

The trial judge was correct to conclude that the fact the transaction was devised to
obtain a revenue advantage to AXA does not mean that the transaction was a non-arms
length one: see Baxter. If the Commissioner’s submission was taken to its logical

210 FEDERAL COURT OF AUSTRALIA [(2010)

115

116

117

118

conclusion, it would be difficult to conceive of any circumstances in which parties to an
arrangement under which roll-over relief is provided could to be said to be an arms
length transaction.

Finally, we consider there may be real risks in approaching the question of whether 2
parties are dealing with each other at arms length by “dissecting” the dealing into
segments or aspects and submitting that the parties “colluded” or “yielded judgment” one
to the other on some aspect of the dealing in the manner contended for by the
Commissioner. As the facts of this case demonstrate, one party can frame an offer in
terms that it knows will attract the other party. There may be little debate between them
about the terms (or some of the terms) yet the parties will still have dealt with each other
at arms length. If, however, the dealings are dissected, it may be thought to lead to the
result that if A offers B a term that it knows will attract B, A has somehow yielded its
freedom of bargaining power to B when, in fact, the contrary is the position – A has
exercised its freedom of bargaining power with a view to attracting acceptance by B. In
the end, what must be borne steadily in mind is that any assessment of whether parties
were dealing at arms length is a question of fact and that question of fact is resolved by
“an assessment [of] whether in respect of that dealing they dealt with each other as arms
length parties would normally do, so that the outcome of their dealing is a matter of real
bargaining”: Furse (at ATR 1132; ATC 4014-4015) per Hill J. “Dissecting” the dealing
into segments may not assist that inquiry. But that is not to deny, however, the possibility
that there may be one or more aspects of parties’ dealings which, on assessment, can be
seen not to have been a dealing where the parties dealt with each other as arms length
parties would normally do: see, by way of example, Collis.

For those reasons, we reject the Commissioner’s appeal grounds 1-4. The trial judge
was correct to conclude that AXA and Macquarie Bank did deal with each other at arms
length.

Did AXA obtain a tax benefit within the meaning of s 177C?

The next issue raised by the Commissioner on appeal was whether AXA obtained a
“tax benefit” in connection with the scheme within the meaning of s 177C of the ITAA
1936. The Commissioner submitted, in broad terms, that the trial judge erred in his
interpretation of s 177(1)(a) and erred in concluding that there was no tax benefit. The
Commissioner submitted that the “tax benefit” AXA obtained in connection with the
“scheme” was the capital gain of $383,125,293 (being part of the capital gain on disposal
of AXA’s shares in AXA Health) which allegedly would have been or might reasonably
be expected to have been included in AXA’s assessable income if the scheme had not
been entered into or carried out.

In FCT v Spotless Services Ltd (1996) 186 CLR 404 at 413; 34 ATR 183 at 185-186;
96 ATC 5201 at 5204-5205; 141 ALR 92 at 95, the High Court stated:

Part IVA operates where: (i) there is a “scheme” as defined in s 177A; (ii) there is a “tax
benefit” which, in relation to income amounts, is identified in para (a) of s 177C(1) as an
amount not included in the assessable income of the taxpayer where that amount would have
been included or might reasonably be expected to have been included in that assessable
income for the relevant year of income if the scheme had not been entered into or carried
out; (iii) having regard to the 8 matters identified in para (b) of s 177D, it would be
concluded that there was the necessary dominant purpose of enabling the taxpayer to obtain
the tax benefit; and (iv) the Commissioner makes a determination that the whole or part of
the amount of the tax benefit is to be included in the assessable income of the taxpayer
(s 177F(1)(a)). The Commissioner then “shall take such action as he considers necessary to
give effect to that determination” (s 177F(1)). (Citations omitted.)

The Commissioner identified the scheme as comprising:

21181 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Edmonds and Gordon JJ)

119

120

121

122

123

(a) establishing the corporate structure to acquire AXA Health from [AXA] and in
particular:

(i) the incorporation of Macquarie Health Funding as a wholly owned
subsidiary of Macquarie Health Acquisitions;

(ii) the incorporation of Macquarie Health Acquisitions as a subsidiary of
Macquarie Bank (which owned 99 $1 shares), with one share being owned
by Macquarie Health Holdings; and

(iii) the incorporation of Macquarie Health Holdings as a subsidiary of
Macquarie Bank (which owned 99 $1 shares), which one share being owned
by BDW [Nominees Pty Ltd];

(b) the incorporation of MB Health Holdings as a special purpose company jointly
owned as to 50% by Macquarie Bank and as to 50% by BUPA, through BAPL;

(c) issuing [AXA] with a replacement interest in Macquarie Health Acquisitions on the
disposal of the shares to Macquarie Health Funding;

(d) attaching special rights to the vendor shares so that the replacement interest was not
a significant stake in Macquarie Health Acquisitions thereby enabling [AXA] to
make the choice unilaterally to obtain the roll-over;

(e) the agreements by and under which the vendor shares were created and issued by
Macquarie Health Acquisitions to [AXA];

(f) all of the agreements and steps taken up to and on 28 February 2003 to complete the
sale of AXA Health to MB Health Holdings;

(g) [AXA] purportedly choosing to obtain the roll-over; and

(h) The relevant scheme was entered into or carried out by one or more of [AXA],
Macquarie Health Funding, Macquarie Health Acquisitions, Macquarie Health
Holdings, MB Health Holdings, Macquarie Bank and their legal and taxation
advisors, with the requisite purpose.

Neither the existence nor the identification of the “scheme” for the purposes of s 177A
was in dispute. However, 3 matters must be noted. First, the reference to “all of the
agreements” in para (f) is a reference to “all agreements that [were] in evidence before
the court”: see (at ATR 875 [107]; ATC 10,503-10,505 [107]) of the trial judge’s reasons
for decision. Secondly, the reference in para (h) does not include BUPA. Counsel for
AXA informed the court that before the trial judge the relevant parties in para (h) were
AXA and Macquarie Bank. Finally, the scheme was defined broadly and the
Commissioner eschewed reliance on any other or narrower scheme: see at ATR 876-878
[110]-[113]; ATC 10,504-10,506 [110]-[113] of the trial judge’s reasons for decision.

Identification of the alternative postulate

Relevant legal principles

The starting point in any consideration of s 177C must be the whole of Pt IVA of the
ITAA 1936. No one provision can be viewed in isolation: FCT v Hart (2004) 217 CLR
216 at 232-234 [37]; 55 ATR 712 at 722-723 [37]; 78 ALJR 875 at 882-884 [37]; 2004
ATC 4599 at 4607-4609 [37]; 206 ALR 207 at 217-218 [37] per Gummow and Hayne JJ.

Section 177C(1) provides:

(1) Subject to this section, a reference in this Part to the obtaining by a taxpayer of a tax
benefit in connection with a scheme shall be read as a reference to:

(a) an amount not being included in the assessable income of the taxpayer of a year of
income where that amount would have been included, or might reasonably be
expected to have been included, in the assessable income of the taxpayer of that year
of income if the scheme had not been entered into or carried out; or

(b) a deduction being allowable to the taxpayer in relation to a year of income where the

212 FEDERAL COURT OF AUSTRALIA [(2010)

124

125

whole or a part of that deduction would not have been allowable, or might
reasonably be expected not to have been allowable, to the taxpayer in relation to that
year of income if the scheme had not been entered into or carried out; or

…
and, for the purposes of this Part, the amount of the tax benefit shall be taken to be:

(d) in a case to which paragraph (b) applies – the amount of the whole of the deduction
or of the part of the deduction, as the case may be, referred to in that paragraph.

Section 177C (read with the other provisions in Pt IVA) identifies that it is an
“objective fact” whether a taxpayer obtained a tax benefit in relation to a scheme to
which Pt IVA applies: FCT v Peabody (1994) 181 CLR 359 at 382; 28 ATR 344 at 351;
68 ALJR 680 at 684-685; 94 ATC 4663 at 4669-4670; 123 ALR 451 at 458-459; Hart
(at CLR 232-234 [37]; ATR 722-723 [37]; ALJR 882-884 [37]; ATC 4607-4609 [37];
ALR 217-218 [37]); FCT v Lenzo (2008) 167 FCR 255 at 277 [119]; 71 ATR 511 at
532-533 [119]; 2008 ATC 20-014 at 8166 [119]; 247 ALR 242 at 263 [119]; citing FCT
v Mochkin (2003) 127 FCR 185 at 194 [26]; 52 ATR 198 at 205 [26]; 2003 ATC 4272
at 4278 [26].

In the case of an amount being included in the assessable income of a taxpayer,
s 177C(1)(a) provides that it is an objective inquiry as to what would have been included
or might reasonably be expected to have been included in the assessable income had the
“scheme” not been entered into or carried out: Epov v FCT (2007) 65 ATR 399 at 412
[62]; 2007 ATC 4092 at 4102 [62] and Peabody (at CLR 385-386; ATR 353-354; ALJR
686-687; ATC 4671-4672; ALR 461-462).

The legislation requires a comparison between the relevant scheme and an alternative
postulate, or counterfactual: Hart (at CLR 243-244 [66]; ATR 730 [66]; ALJR 889 [66];
ATC 4614 [66]; ALR 226 [66]).

The alternative postulate requires a “prediction as to events which would have taken
place if the relevant scheme had not been entered into or carried out and that prediction
must be sufficiently reliable for it to be regarded as reasonable” (emphasis added). “A
reasonable expectation requires more than a possibility”: Lenzo (at FCR 278 [122]; ATR
533 [122]; ATC 8167 [122]; ALR 264 [122]); citing Peabody (at CLR 385; ATR 353;
ALJR 686; ATC 4671; ALR 461). The question posed by s 177C(1) is answered on the
assumption that the scheme had not been entered into or carried out: Lenzo (at FCR
277-278 [121]; ATR 533 [121]; ATC 8167 [121]; ALR 263-264 [121]).

In its notice of contention, AXA submitted that any alternative postulate could not
include a direct sale to MB Health Holdings, as the scheme included the incorporation of
MB Health Holdings and if the scheme had not been entered into, MB Health Holdings
would never have been incorporated to allow a direct acquisition. AXA relied on the
statement of Sackville J in Lenzo (at FCR 281 [

136

]; ATR 536 [136]; ATC 8169 [136];
ALR 266 [136]) that s 177C required the “entirety of the scheme to be ignored.”

However, contrary to AXA’s submissions, that is not the entire question posed by
s 177C. The rest of the question involves the objective inquiry of predicting the
particular activity or the events that would have, or might reasonably be expected to
have, taken place in the absence of the scheme: Lenzo (at FCR 279 [128]; ATR 534
[128]; ATC 8,168 [128]; ALR 265 [128]); Peabody (at CLR 385; ATR 353; ALJR 686;
ATC 4671; ALR 461) and FCT v Trail Bros Steel and Plastics Pty Ltd (2010) 186 FCR
410 at 418 [28]; 2010 ATC 198 at 11,216 [28]; 272 ALR 40 at 47 [28]; 79 ATR 780 at
789 [28]. The particular activity or the events that would have, or might reasonably be
expected to have, taken place in the absence of the scheme and which are identified as a

138

1 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Edmonds and Gordon JJ)

126

127

128

129

130

131

result of the objective inquiry are not confined or defined by the scheme. As the High
Court has said, “scheme” is a word of wide import: Peabody (at CLR 383; ATR 351-352;
ALJR 685; ATC 4670; ALR 459-460); Hart (at CLR 259-260 [87]; ATR 741 [87]; ALJR
899 [87]; ATC 4624-4625 [87]; ALR 238 [87]).

The express words of s 177C require a prediction about what would happen or might
reasonably be expected to happen. It is necessarily a hypothetical analysis. But it is a
hypothetical analysis directed at ascertaining what particular activity would have been
(or might reasonably have been) undertaken if the scheme was not entered into. The
“integers” comprising the scheme that are relevant to that objective inquiry are not
limited and “may not always permit the precise identification of … all the integers of a
particular ‘scheme’”: Hart (at CLR 236 [43]; ATR 724-725 [43]; ALJR 885 [43]; ATC
4610 [43]; ALR 220 [43]) and Trail Bros (at FCR 418-419 [30]; ATR 789 [30]; ATC
11,216-11,217 [30]; ALR 48 [30]).

It is contrary to the express words of s 177C (including s 177C(2)), its context and its
purpose to exclude particular integers from a prediction about what would happen or
might reasonably be expected to happen. Put another way, absent particular integers, the
inquiry would not be an objective inquiry as required by s 177C but a prediction of what
would happen or might happen having regard to only a sub-set of the integers available
to a taxpayer: see Trail Bros (at FCR 419 [31]; ATR 789 [31]; ATC 11,217 [31]; ALR 48
[31]).

Finally, the onus is on the taxpayer (AXA) to establish that he or she did not obtain a
tax benefit in connection with the scheme; that is the taxpayer needs to show that the
amount would not have been included, or might not reasonably be expected to have been
included, in its assessable income if the scheme had not been entered into or carried out:
ss 14ZZK and 14ZZO of the Taxation Administration Act 1953 (Cth); McAndrew v FCT
(1956) 98 CLR 263 at 268-269; [1956] ALR 1008 at 1009-1010; Gauci v FCT (1975)
135 CLR 81 at 89; 5 ATR 672 at 676-677; 50 ALJR 358 at 361; 34 LGRA 321 at 326;
75 ATC 4257 at 4261; 8 ALR 155 at 160; McCormack v FCT (1979) 143 CLR 284 at
303, 306 and 323; 9 ATR 610 at 622, 624 and 635-636; 53 ALJR 436 at 443, 444 and
451; 79 ATC 4111 at 4121, 4123 and 4132-4133; 23 ALR 583 at 597-598, 599-600 and
614; FCT v Dalco (1990) 168 CLR 614 at 620 and 623-625; 20 ATR 1370 at 1372 and
1374-1376; 64 ALJR 166 at 168 and 169-170; 90 ATC 4088 at 4090-4091 and
4092-4094; 90 ALR 341 at 343-344 and 345-347 and Lenzo (at FCR 278-279 [125];
ATR 523-524 [125]; ATC 8167 [125]; ALR 264 [125]).

Analysis

At first instance, the Commissioner relied on 2 alternative postulates as to what would
or might reasonably be expected to have occurred had the scheme not been entered into.
The first was that if AXA had not entered into the scheme, it would have or might
reasonably be expected to have disposed of AXA Health directly to MB Health Holdings.
The second was that if AXA had not entered into the scheme, AXA would or might
reasonably be expected to have disposed of AXA Health in the same way as it did (that
is, to Macquarie Health Acquisitions) but with Macquarie Bank holding 100% of
Macquarie Health Acquisitions.

On appeal, the Commissioner only relied on the first alternative postulate. The trial
judge held that having regard to the Commissioner’s identification of the scheme (see at
[123] above), the time for assessing any alternative postulate must be at the time that
AXA decided to enter into the scheme, being 3 June 2002 “or some other point in time
thereabouts when Macquarie Bank and the BUPA interests had executed the equity

214 FEDERAL COURT OF AUSTRALIA [(2010)

132

133

134

135

136

participation agreement but before the execution of the underwriting agreement.” After
considering the evidence before him, the trial judge rejected the alternative postulate,
stating:

The same conclusion cannot, in my view, be reached with respect to the position which
Macquarie Bank would occupy in its relations with the applicant, if it be assumed that there
was to be a direct sale to MB Health Holdings. As I have pointed out above, it must be here
assumed that there would have been no underwriting agreement. Thus Macquarie Bank
would have foregone the underwriting fee of $5,000,000. Neither would the equity sell
down agreement have made any sense under a direct sale scenario. There would, therefore,
have been no equity sell down fee of $5,000,000. Thus Macquarie Bank itself would have
been $10,000,000 the worse off for the absence of the mechanism by which AXA Health
was sold indirectly to MB Health Holdings. Mr Facioni was adamant that Macquarie Bank
would never have made itself part of a direct acquisition of AXA Health by MB Health
Holdings for the reason (at least) that it would not then derive this fee income. Although his
apprehension that a direct sale would have denied Macquarie Bank the prospect (which
existed on 3 June 2002) of profiting from the on-sale of its interest in MB Health Holdings
is not, I have found, a relevant point of difference between the 2 scenarios, I accept what he
said about the loss of the fees to which I have referred. I therefore consider it to be outside
the range of reasonable expectation that, if AXA Health had not been sold in the way that it
was, it would have been sold directly by the applicant to MB Health Holdings at the same
price.

The Commissioner submitted that the words “might reasonably be expected to have
been included” in s 177C(1)(a), when considered in light of the object and purpose of
Pt IVA, set a “relatively low hurdle” which provided the gateway for the other provisions
in Pt IVA to operate. The Commissioner submitted the trial judge erred in:

(1) not treating it “as a given” that AXA would have (or might reasonably be
expected to have) disposed of its shares in AXA Health, and that MB Health
Holdings would have (or might reasonably be expected to have) acquired the
shares in AXA Health, if the scheme had not been carried out;

(2) testing the Commissioner’s alternative postulate in such a detailed and exacting
manner;

(3) relying on “the subjective evidence of witnesses as to what they thought would
have occurred if the scheme had not been entered into or carried out”;

(4) failing to consider “the usual or conventional way to structure the transaction
and use this as the alternative postulate”;

(5) failing to have regard to the putative purpose of the scheme in considering
whether the amount would have been included, or might reasonably be expected
to have been included, in the assessable income AXA absent the scheme; and

(6) in the alternative, rejecting the alternative postulate on the basis that a direct sale
from AXA to MB Health Holdings “essentially on the basis” that Macquarie
Bank would not have agreed to such a transaction because it would have
deprived it of its opportunity to earn its fees.

In reaching his conclusion that the Commissioner’s alternative postulate should be
rejected, the trial judge cited with approval the evidence of Mr Facioni and then
addressed the alternative postulate as follows (at ATR 880-881 [122]-[123]; ATC
10,508-10,509 [122]-[123]):

[122] In his affidavit sworn on 8 December 2008, Mr Facioni said:

In the course of preparing this affidavit I have become aware that the [Commissioner]
has suggested that if [AXA] had not sold AXA Health to Macquarie Health
Acquisitions, it would have sold AXA Health directly to MB Health Holdings. That

21581 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Edmonds and Gordon JJ)

137

138

suggestion is incorrect. The transaction with [AXA] to purchase AXA Health had
been originated, structured, negotiated and executed by Macquarie Bank. MB Health
Holdings, BUPA and BAPL were participants in the transaction, with Macquarie
Bank as the overall transaction sponsor. Macquarie Bank stood to receive certain
financial benefits for arranging and leading the transaction and for assuming certain
material risks (financial and reputational) and devoting significant resources
throughout the course of the transaction. At no time was MB Health Holdings in a
position independently to offer to acquire AXA Health and, as a 50 per cent
shareholder in MB Health Holdings with significant commercial benefit at stake,
Macquarie Bank would not have permitted such a transaction to occur.

Objection was taken to the final sentence in that extract. I deferred my ruling on that
objection pending Mr Facioni being asked in chief what was the basis for the statement
contained in that sentence. He was so asked, and responded as follows:

I was the transaction leader, so I was directing the transaction on behalf of
[Macquarie Bank] and I was reporting through to [Macquarie Bank’s] executive
committee and ultimately board of directors. The transaction had been arranged in a
way that [Macquarie Bank] stood to make quite significant economic benefits by
virtue of how the transaction was anticipated to proceed; that is, AXA Health to be
acquired by [Macquarie Bank] and then on-sold to a consortium. That was the nature
of the transaction that we structured. That was how [Macquarie Bank] stood to make
an economic benefit. If [Macquarie Bank] were to be bypassed in that sequence, it
would sacrifice quite significant fees and it wasn’t in its interests for that to occur. So
[Macquarie Bank] was highly incentivised to ensure that the transaction proceeded
along those lines. I guess, further to that, MB Health Holdings itself had no resources,
had no employees, had no financial resources, and was only able to ultimately acquire
AXA Health through the work that [Macquarie Bank] and [Macquarie Bank’s]
executives – being myself and the team – were conducting.

On the strength of that evidence, counsel for the Commissioner did not pursue their
objection. Under cross-examination, Mr Facioni confirmed that the transactions which
Macquarie Bank negotiated with the applicant were separate from those which it negotiated
with BUPA. He agreed that the “significant commercial benefit” to which he referred in the
final sentence in the passage from his evidence set out above was the selldown fee of
$5,000,000 provided for in the equity sell down agreement and the underwriting fee of
$5,000,000 provided for in the underwriting agreement, adding “plus also any profits that
[Macquarie Bank] could make through an on-sale.” He was challenged about that latter
aspect, and explained that, as at the time when the underwriting agreement was executed
with the applicant on 4 June 2002, Macquarie Bank had obtained a commitment from BUPA
that it (or presumably BAPL) would take 100% of AXA Health if MB Health Holdings were
not able in the meantime to sell it to third parties at a profit. It was only later, when no such
third parties could be found, that it was agreed as between Macquarie Bank and BUPA that
the latter would assume complete ownership of MB Health Holdings (and, presumptively, of
AXA Health).

[123] I consider that the question whether it might reasonably be expected that MB
Health Holdings would have made an offer to buy AXA Health directly from the applicant
must be asked, notionally, at 3 June 2002, or some other point in time thereabouts when
Macquarie Bank and the BUPA interests had executed the equity participation agreement but
before the execution of the underwriting agreement. It was the latter that primarily set up the
structure that was employed for the sale of AXA Health, a structure that could not be
described as a direct sale from the applicant to MB Health Holdings. Put another way, the
execution of the underwriting agreement necessary destroyed any prospect of a direct sale,
thereby excluding it from the range of outcomes that might reasonably be expected to have
occurred. (Emphasis added.)

The Commissioner submitted that Mr Facioni’s evidence was “speculative” as it
concerned the subjective views of participants as to what would or would not have

216 FEDERAL COURT OF AUSTRALIA [(2010)

139

occurred absent the scheme. As noted earlier, the inquiry is based on objective facts (see
at [126] above). However, AXA was entitled (as it did) to lead evidence to discharge its
onus of proof. As Sackville J said in Lenzo, the taxpayer may lead evidence that the
taxpayer would have undertaken a particular activity, or adopted a particular course, in
lieu of the scheme. It is also conceivable that a taxpayer may not lead positive evidence
of an alternative postulate because, for example, the result of any objective inquiry of the
alternative postulate is inevitable. In the end, the court will decide what would have been
done, or might reasonably be expected to have been done, in lieu of the scheme having
regard to all of the evidence that is led. If a taxpayer has given evidence of what he or
she would have done but for entering the scheme, that evidence will be relevant and
useful to the extent to which it reveals facts or matters that bear upon the objective
determination of the alternative postulate.

As Greenwood J stated in McCutcheon v FCT (2008) 168 FCR 149; 69 ATR 607;
2008 ATC 20-009:

[37] It is perfectly clear that a deponent in seeking to demonstrate (and discharge the onus
of proof) that an assessment is excessive having regard to a prediction as to whether an
amount might reasonably have been included in the assessable income of the taxpayer,
cannot simply give evidence that the answer is to be found in the deponent speculating as to
what he or she would or would not have done in the absence of the scheme: WD & HO Wills
(Australia) Pty Ltd v FCT (1996) 65 FCR 298. The Commissioner accepted in the course of
argument on the appeal that it is perfectly proper for a deponent in the position of
Mr McCutcheon to say in evidence that the trustee (controlled by the taxpayers) would not
have made distributions of the amounts postulated by the Commissioner to the taxpayers,
provided the foundation for that observation or conclusion is given in evidence. In other
words, Mr McCutcheon might have said that “the trustee would never have distributed such
a substantial portion to either my wife or I” because (or for that reason that) and then
identify factual circumstances which support the proposition. The vice said to exist in
Mr McCutcheon’s evidence is that it is simply speculative evidence on the ultimate question
unsupported by any evidence of material facts from which the conclusion Mr McCutcheon
contends for could be drawn.

…

[39] It seems to me that the tribunal is entitled to receive into evidence the statement
objected to by the respondent provided foundation facts are given in evidence which support
what would otherwise be a bald speculative statement. Those foundation facts would in the
ordinary course of events be detailed and comprehensive and seek to explain why the
prediction could not reasonably be entertained in the context of a full understanding of the
matrix of fact. Such an approach would be consistent with principle and enable the taxpayer
to state a position derived from a factual foundation. …

…

[45] The tribunal also concluded that it was a matter for the Commissioner to demonstrate
to the tribunal that a basis for sufficiently reliable prediction subsisted once the appellants
put the determination and assessments in issue. There is no doubt that the onus and burden
of proof falls upon the appellants to demonstrate that the assessment issued to each taxpayer
is excessive. That necessarily involves each taxpayer adducing evidence which would
discharge the onus of demonstrating that the Commissioner’s prediction or hypothesis was
not sufficiently reliable for it to be regarded as reasonable. The appellants sought to do that
by reliance upon the history of distributions.

The objective facts before the trial judge were that the underwriting agreement (see at
[94] above) and the equity sell down agreement (see at [95] above) would not have been
entered into had the scheme not been carried out and the fees payable to Macquarie Bank
under those agreements would have been lost. These objective facts were identified by
Mr Facioni and accepted by the trial judge thereby discharging AXA’s onus of

21781 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Edmonds and Gordon JJ)

140

141

demonstrating that the Commissioner’s alternative postulate “was not sufficiently reliable
for it to be regarded as reasonable”: McCutcheon. The trial judge was entitled to have
regard to and rely upon the evidence of Mr Facioni.

The Commissioner’s submission that it was a “given” that a direct sale from AXA to
MB Health Holdings would have taken place absent the scheme is contrary to the
evidence of Mr Facioni and ignores the significance of the fees that were imposed under
the underwriting agreement and the equity sell down agreement (see at [136] and [138]
above). The contention by the Commissioner that there was “no good reason why these
fees … could not have been charged by Macquarie Bank in connection with a direct sale
from AXA to MB Health Holdings” was similarly contrary to the evidence of Mr Facioni
that was accepted by the trial judge. Further, although there cross-examination at first
instance of Mr Penn and Mr Owen about the nature of the fee (specifically whether the
fee was a “structuring fee” or otherwise), no witnesses were cross-examined on whether
there would have been a fee charged by Macquarie Bank in any event with a direct sale
from AXA to MB Health Holdings.

Similarly, the Commissioner’s submission that the trial judge erred in failing to
consider “the usual or conventional way to structure the transaction (that is, a direct sale
from AXA to MB Health Holdings) and use this as the alternative postulate” and that
“the facts of the transaction themselves yielded up that alternative postulate” must also
be rejected. The evidence accepted by the trial judge demonstrated that a direct sale of
the shares in AXA Health from AXA to MB Health Holdings would not have (or would
not reasonably be expected to have) occurred because it would have, inter alia, denied
Macquarie Bank its fees. The facts did not support the Commissioner’s alternative
postulate.

The Commissioner further submitted that the trial judge erred in testing the alternative
postulate in such a detailed and exacting matter. The Commissioner submitted the trial
judge “in effect approached the question on the basis of what would have occurred if the
scheme had not been entered into or carried out,” rather than a more “conceptual
inquiry” about what might reasonably be expected to have occurred had the scheme not
been entered into or carried out. This submission must be rejected. As noted in Lenzo and
Peabody, a reasonable expectation requires more than a possibility. The trial judge’s
evaluation of the evidence to determine what would or might reasonably be expected to
have taken place in the absence of the scheme was consistent with authority and no error
has been demonstrated.

Finally, the Commissioner submitted that the trial judge erred in failing to consider the
“putative purpose” of the scheme. The submission is without foundation and must be
rejected. First, there was no factual finding by the trial judge that the “putative purpose”
of the scheme was to attract the benefit of the scrip-for-scrip roll-over relief. Secondly,
counsel for the Commissioner conceded that this submission contradicted his earlier
submission concerning the use of subjective evidence: see at [139]-[140] above. As a
result, the Commissioner stated that this was an alternative submission. Looking to the
“putative purpose” of the scheme is not something contemplated by s 177C(1)(a) and is
contrary to the notion that the inquiry be one based on objective fact: Epov (at ATR 412
[62]; ATC 4102 [62]) and Peabody (at CLR 385-386; ATR 353-354; ALJR 686-687;
ATC 4671-4672; ALR 461-462).

One final matter should be noted. In our view, having regard to the evidence before the
trial judge, it might reasonably be expected that, had the scheme not been entered into or
carried out, a direct sale to MBF would have occurred. That was the only other offer on
the table on 3 June 2002: see at [93] above. Neither party suggested this as the
alternative postulate. AXA conducted the case at first instance by demonstrating that

218 FEDERAL COURT OF AUSTRALIA [(2010)

142

143

144

145

146

there would have been no sale to MB Health Holdings, as that was what was the
alternative postulate identified by the Commissioner. AXA did not propose or pursue
another alternative postulate and, in particular, did not pursue an alternative postulate
that there would have been a direct sale to MBF. On appeal, AXA submitted that it was
“content” for a direct sale to MBF to be the alternative postulate. The Commissioner
opposed this approach and submitted that the court should not find the alternative
postulate of a direct sale to MBF because “it was not the subject of questioning of
witnesses and … therefore the evidence is incomplete on that issue.” We reject the
Commissioner’s submission. Both parties referred the court to evidence that suggested
MBF was a likely buyer, indeed largely the preferred buyer, for AXA Health: see, for
example, at [63]-[66], [68], [74], [87] and [93] above. As noted earlier, it was the only
other offer on the table on 3 June 2002. The difficulty for the Commissioner was that if
a direct sale to MBF was the alternative postulate, there would be no tax benefit within
the meaning of s 177C(1)(a) because AXA would not have generated a capital gain but
rather a profit in the hands of AXA Health. Why? Because MBF wanted to acquire the
business and not the shares.

The finding that it might reasonably be expected that the alternative postulate was a
direct sale to MBF is a further example of the difficulties which now arise in litigation
concerning Pt IVA where the focus is on the “scheme” and the “alternative postulate”
identified by the parties. Of course, this is a direct result of the adversarial process. The
problem is that it does run the risk of creating considerable artificiality often divorced
from commercial reality.

For these reasons, the Commissioner’s appeal grounds concerning the tax benefit must
be rejected. The trial judge was correct to conclude that there was no tax benefit. Having
concluded that there was no tax benefit, it is unnecessary to consider the submissions
concerning s 177C(2)(a), s 177D(b) and penalties.

Solicitor for the appellant: Australian Government Solicitor.

Solicitors for the respondent: Mallesons Stephen Jaques.

KIRK WILSON

21981 ATR 180] FCT v AXA ASIA PACIFIC HOLDINGS LTD (Edmonds and Gordon JJ)

147

148