“The court shall make a disqualification order against a person in any case where, on an application under this section, it is satisfied— (a) that he is or has been a director of a company which has at any time become insolvent (whether while he was a director or subsequently), and (b) that his conduct as a director of that company (either taken alone or taken together with his conduct as a director of [one or more other companies or overseas companies]) makes him unfit to be concerned in the management of a company.” (a) that he is or has been a director of a company which has at any time become insolvent (whether while he was a director or subsequently), and (b) that his conduct as a director of that company (either taken alone or taken together with his conduct as a director of [one or more other companies or overseas companies]) makes him unfit to be concerned in the management of a company.”
“(2A) If it appears to the Secretary of State that the conditions mentioned in section 6(1) are satisfied as respects any person who has offered to give him a disqualification undertaking, he may accept the undertaking if it appears to him that it is expedient in the public interest that he should do so (instead of applying, or proceeding with an application, for a disqualification order).” 13.Section 1A(1) of the Act, so far as relevant, provides as follows: “In the circumstances specified in sections [5A, 7, 8, 8ZC and 8ZE] the Secretary of State may accept a disqualification undertaking, that is to say an undertaking by any person that, for a period specified in the undertaking, the person— (a). will not be a director of a company, act as receiver of a company’s property or in any way, whether directly or indirectly, be concerned or take part in the promotion, formation or management of a company unless (in each case) he has the leave of a court … ” 14.And section 17 of the Act, so far as relevant, provides as follows: “(3) Where a person is subject to a disqualification undertaking accepted at any time under section [5A,] 7 or 8, any application for leave for the purposes of section 1A(1)(a) shall be made to any court to which, if the Secretary of State had applied for a disqualification order under the section in question at that time, his application could have been made. [ … ] (5) On the hearing of an application for leave for the purposes of section 1(1)(a) or 1A(1)(a), the Secretary of State shall appear and call the attention of the court to any matters which seem to him to be relevant, and may himself give evidence or call witnesses.”
“67. The terms upon which it is suggested by Mr. Zelin that Mr. Hennelly should be permitted to act as a director of Utilities are broadly as follows:— (1) The Company will appoint a director (originally suggested to be nonexecutive, but now intended to be an executive director), who is a qualified accountant, who will be able to supervise the board. Mr. Frank Dalton has been identified as a suitable candidate and has agreed to act. He has confirmed that he is willing to attend monthly board meetings and otherwise comply with the regime put forward. (2) Mr. Kumuran or some other similar qualified person will remain on the board as financial director, and there will be at least one other full-time executive director apart from Mr. Hennelly. (3) The board will continue to meet on a monthly basis. (4) Monthly management accounts will be produced for each meeting. (5) The Company will continue to make its VAT returns and payments and to account for PAYE and NIC in accordance with the applicable legislation or any other agreements reached with the relevant agencies from time to time. (6) No dividends will be declared if the Company's most recent audited accounts show that the Company's current assets do not exceed its current liabilities. (7) The Company will not fund any business of any other company, unless that company is a subsidiary of the Company 68. Importantly, however, in the course of argument Mr. Zelin has, on behalf of Mr. Hennelly, offered three further conditions which he is prepared to fulfil if the permission he seeks is granted. (1) First, Mr. Hennelly has offered to make immediate repayment of the loans that have been made by Utilities to both Valueunion and Hennelly's. (2) Secondly, Mr. Hennelly has offered to subordinate all the debt outstanding from Utilities to him (in excess of£300,000 ), to all other creditors. (3) Thirdly, Mr Hennelly has offered that Mr Dalton will make quarterly reports to the Department of Trade and Industry in relation to the fulfilment (or otherwise) of the other conditions. [ … ] Discussion 73. I turn then to consider whether Mr. Hennelly should be given the permission he seeks on the terms that he suggests, or on any terms. 74. In my judgment, this is a most unusual case. The facts are unlike any reported decision that I have been shown. It is useful, therefore, to summarise the matters that I see as crucial to my decision. (1) Mr. Hennelly was disqualified for serious mismanagement and want of commercial probity, but not dishonesty. The mismanagement caused large financial loss to the Crown and to other creditors. (2) Mr. Hennelly was also disqualified for funding his other enterprises at the creditors' expense, a wholly unacceptable practice. He was found to be unfit to be concerned in the management of a company. (3) Utilities has been undertaking much the same business as the five companies, and has only been marginally better run to date. (4) There is still a history in Utilities of late filing of annual returns and accounts, unpaid Crown debt and financing of associated companies. (5) Utilities has, however, traded (mostly solvently) for 6 years, and many employees and subcontract labourers depend on Utilities for a job. This, in my judgment, is an important factor. (6) The terms proposed offer the real prospect that the matters of which complaint was made in relation to the governance of the five companies and the governance of Utilities will improve. (7) The guidance of Mr. Dalton, as a director, will only be obtained if permission is granted. Mr. Dalton will have his own reputation to protect and will know that, if the Company of which he is a director is mismanaged, he will be likely to face his own disqualification proceedings in due course. (8) It may reasonably be hoped that, with Mr Dalton in place as a director, the late filings and Crown debt will be a thing of the past. (9) The conditions will ensure that all loans made to Mr Hennelly's other companies are re-paid at once, and that there will be no more such loans. That will considerably enhance the Company's financial position. Mr. Hennelly will not be able to siphon money out of the company to any other associated companies or to himself in the way that he has done in the past. The condition that imposes that requirement is crucial, it seems to me, to this application. (10) Mr. Hennelly will have his own loan investment in the Company of over£300,000 , which loan will be subordinated to all other creditors. He will lose that money if the company is mismanaged, and goes into insolvent liquidation. 75. Conversely, if no order is made, the position is rather less secure. First, Utilities will continue to trade anyway as it has done in the past. There is nothing that this court on this application can do about that. Secondly, it seems very likely that Mr. Dalton will not accept a position on the board since he says as much in his letter which I have referred to dated3rd November 2003 . Thirdly, the loans made to Valueunion and Hennelly's will not be repaid, so that the company's cash flow position will not be improved by the not insignificant amount of£811,542 . Fourthly, contracts may not be obtained so that the employees' jobs will be at greater risk. Fifthly, the Crown and other creditors will have a greater prospect of being paid timeously if an order is made, than if no order is made. 76. There is, of course, no guarantee that if an order is made on the stringent conditions that have been suggested that any of the improvements will occur. I have wondered anxiously whether, by making the order sought, I am effectively allowing Mr. Hennelly to create a bigger business with bigger risks for the public, and the greater and increased risk that the defalcations that led to his original disqualification will be repeated. As I put in argument to Mr. Lopian, ‘the higher you rise the harder you fall’. But I bear in mind the dictum of Sir Richard Scott V-C in Shuttleworth at page 211. It seems to me that it is no part of the legislation that entrepreneurial risk should be prevented, only that the public should be protected from those matters that gave rise to the disqualification order. As I have said, Utilities will continue to trade and the public will be at some risk from that trading whatever order I make. The prospect of success for Utilities is not something that I can predict, but I can say that if Mr. Hennelly is allowed to be a director on the stringent terms proposed it seems to me, on the evidence, more rather than less likely (a) that the company will survive, and (b) that the company will be protected from the matters for which Mr. Hennelly was disqualified. [ … ] 78. … I have to consider the question of the protection of the public against the background of reality rather than theory. It is no use deciding the abstract question of whether the public would be better protected if Utilities did not exist and was not trading at all. I have no doubt that would be the case, but it is the wrong question. The question in this unusual case is whether the public will be better protected if Mr Hennelly is given permission to act as a director of Utilities on the terms proposed, as compared to the position if he is refused permission altogether. It is against that background that the balancing exercise has to be undertaken. 79. This is also an unusual case, because the purpose of the order in disqualifying Mr. Hennelly has not, in fact, been fully respected in the events which have happened. Mr Hennelly has managed (I have to accept legitimately) to remain involved with Utilities (which he owns) notwithstanding the order. The practices which Mr Hennelly operated in relation to the five companies have (to some, I think rather lesser, extent) been repeated in relation to Utilities. 80. In my judgment, however, the way that the order has been operating will not be further undermined by granting the permission on the stringent terms that Mr. Hennelly offers. Rather, it seems to me, the purpose of the original order will be reinforced, and the protection of the public will be enhanced. The balancing exercise 81. Thus, when I come to balance the protection of the public from the matters which gave rise to Mr. Hennelly's disqualification, against the need of Utilities and of Mr. Hennelly to be a director, I conclude that the order should be made on broadly the terms that Mr. Hennelly has proposed.”