Living Expenses
Guidelines on Reasonable Living Expenses 2016
Insolvency Service may communicate by electronic means.
Reasonable Living
Expenses Background
Information
ISI
1. Summary
The Insolvency Service of Ireland (“ISI”) was established by the Personal Insolvency Act 2012 (“the
Act”). The Act continues the reform of the Bankruptcy Act 1988 and includes the introduction of an
automatic discharge from bankruptcy after three years, subject to certain conditions. It also
introduced three alternatives to bankruptcy, namely a Debt Relief Notice (“DRN”), a Debt Settlement
Arrangement (“DSA”) and a Personal Insolvency Arrangement (“PIA”).
The ISI is charged with a number of functions under the Act. Section 9 of the Act lists that one of
those functions is to prepare and issue guidelines as to what constitutes a reasonable standard of
living and reasonable living expenses under section 23 of the Act1
.
These guidelines are relevant to the assessment of a debtor’s eligibility for a DRN, the formulation of
DSA and PIA proposals and the Court’s making of a bankruptcy payment order in Bankruptcy. In
particular, they are intended to give direction to Approved Intermediaries (“AIs”) and guidance to
Personal Insolvency Practitioners (“PIPs”) in assessing, for relevant provisions of the Act, what may
be considered ‘reasonable’ in the context of a standard of living and living expenses. Guidelines on a
reasonable standard of living and reasonable living expenses are essential in that they enable the
debt servicing capacity of a distressed debtor to be calculated in a fair and consistent manner so that
the sustainability of repayments can be established. The guidelines safeguard a reasonable standard
of living so as to protect debtors while facilitating creditors in recovering all, or at least a portion, of
the debts due to them.
Section 23 of the Act requires the ISI to have regard to certain criteria in preparing guidelines on a
reasonable standard of living and reasonable living expenses. The ISI, in view of these requirements
and following a series of meetings and consultations (listed on 13), decided to use a model (“ISI
model”) which is a modified version of the consensual budget standards model originally developed
in Ireland by the Vincentian Partnership for Social Justice (“VPSJ model”)2
.
The ISI model allows for food for a nutritionally balanced diet, clothing, personal care, health,
household goods, household services, communications, social inclusion and participation, education,
transport, household energy, childcare, insurance and modest allowances for savings and
contingencies.
The use of the ISI model satisfies the requirement contained in section 23 of the Act to have regard
to differences in the size and composition of households. The cost of a child, for example, varies
according to the age of the child and this is taken into account under the ISI model. So too is the
requirement to facilitate the social inclusion of debtors and their dependants and their active
participation in economic activity in the State.
1 The text of Section 23 is reproduced in full as Appendix A to these guidelines.
2 http://www.budgeting.ie/
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In formulating the first ISI model in 2013, the ISI liaised with the Central Statistics Office (CSO) and
the Central Bank of Ireland and compared the output of the ISI model to a CSO analysis of the
Household Budget Survey and an analysis by the Central Bank of Ireland of cases in the Mortgage
Arrears Resolution Process. While certain expenditure categories may vary across the above
referenced sources, in aggregate the expenditure levels generated through the ISI model were not
materially different to the CSO or the Central Bank of Ireland analyses.
One of the greatest strengths of using consensual budget standards is the level of transparency it
affords. Each category of expenditure is supported by detailed lists of items within each category
which are individually priced3
. Different people will naturally have different opinions on what is
meant by reasonable living expenses but the level of transparency offered by this method should
help inform any discussion.
The ISI is required to update these guidelines at intervals of not more than a year under the Act.
These guidelines will be kept under review and the ISI may amend them at any time if the ISI considers
this is warranted. A summary document of the current version of these guidelines is publicly available
on the ISI website.
3 The VPSJ website contains this information based on their model.
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2. Reasonable standard of living
The ISI considers that, for the purposes of the Act, a reasonable standard of living is one which meets
a person’s physical, psychological and social needs. Under the ISI model, a ‘reasonable standard of
living’ does not mean that a person should live at a luxury level but neither does it mean that a person
should only live at subsistence level. A debtor should be able to participate in the life of the
community, as other citizens do. It should be possible for the debtor ‘to eat nutritious food…, to have
clothes for different weather and situations, to keep the home clean and tidy, to have furniture and
equipment at home for rest and recreation, to be able to devote some time to leisure activities, and
to read books, newspapers and watch television’4
.
It follows that ‘reasonable living expenses’ are the expenses a person will necessarily incur in
achieving a ‘reasonable standard of living’ which fulfils these criteria.
4 Nordenankur, ‘More than A Minimum Budget in Sweden’ in ‘Money Matters – Reference Budgets for Social Inclusion’;
European Consumer Debt Network (No. 6, 2009) page 8.
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3. Reasonable living expenses
Under the ISI model, reasonable living expenses are the expenses a person necessarily incurs in
achieving a reasonable standard of living, this being one which meets a person’s physical,
psychological and social needs.
Reasonable living expenses (“RLEs”) will vary depending on a number of factors such as the particular
composition of a household and the need for a car. Beyond that, when determining RLEs, provision
needs to be made for reasonable housing costs in terms of rent or mortgage payments as well as for
reasonable payments in respect of childcare where this expense arises. To arrive at a person’s RLE
the AI or PIP should follow a four-step process shown here in Figure 1 and described below:
Figure 1: Determinants of reasonable living expenses (RLEs)
3.1. Household composition
The AI or PIP should begin by selecting the household composition which best fits the situation of the
debtor from the table in Schedule 1 on page 25 i.e. whether or not the applicant has children and
whether he or she is the only adult in the household.
RLE
Household
Composition
Number of adults &
dependants (if any)
Need for a car
Adequacy of Public
transport
Other Costs
Housing and
Childcare
Special
Circumstances
E.g. extra expenses
associated with
having a disability
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3.2. Need for a car
The household will not normally need a car where the applicant lives in an urban location with
adequate public transport links. Where public transport is not adequate to meet the needs of the
household, the AI or PIP should choose the vehicle option based on the needs of the household
(needs, not wants). A car will be required where a debtor needs it to travel to and from work. Where
a car is not included, the ISI model includes costs associated with the use of public transport.
3.3. Childcare and housing costs
3.3.1. Childcare costs
A significant expense can arise where childcare is needed, particularly at the first two stages of
childhood i.e. infancy and pre-school.
Under the ISI model, childcare costs are brought in under ‘other costs’. This means that reasonable
costs incurred for childcare – as with housing costs – are added to the total for set costs to produce
the final figure for reasonable living expenses.
Where childcare is paid for, the reasonableness of this expense should be considered by the AI or PIP
taking into account the hours of childcare needed, the type of childcare (e.g. crèche, childminder,
etc.) and the typical cost of childcare in the debtor’s locality. Proof in the form of receipts, bank
statements or similar may have to be sought where childcare costs appear excessive. Where
applicable, the Early Childhood Care and Education (“ECCE”) Scheme, which provides a free year of
childcare and early education for children of pre-school age, should be deducted when calculating
childcare costs given that each of the arrangements continues over a number of years.
3.3.2. Housing costs
As with childcare, housing can also be a significant expense. In considering what constitutes
reasonable and sustainable accommodation expenditure in an individual case, the AI or PIP shall have
regard to the following matters:
The costs likely to be incurred by the debtor by remaining in occupation of his or her current
accommodation;
The ability of other persons residing with the debtor to contribute to the costs of maintaining
the debtor’s current accommodation; and
The reasonable living accommodation needs of the debtor and his or her dependants and,
having regard to those needs, the cost of alternative accommodation.
In forming an opinion on the reasonable living accommodation needs of the debtor and his or her
dependants the AI or PIP shall take into consideration the size and composition of the household,
and the differing needs of persons having regard to the matters set out in section 23(3)(e) of the Act.
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The AI or PIP, in assessing the reasonableness of the existing housing costs of the debtor and the cost
of alternative accommodation, may draw on his or her knowledge of the local housing market and
on such publicly available data sources as he or she considers appropriate. These sources may include
the Central Statistics Office Rental Indices, the Private Residential Tenancies Board (“PRTB”) rent
index, the Residential Property Price Register produced by the Property Services Regulatory
Authority (“PSRA”), the quarterly Daft.ie Rental Reports and leading websites advertising properties
for rent or sale. The AI or PIP should support his or her assessment as to the reasonableness of
housing and childcare costs by reference to the matters he or she has taken into account in arriving
at his or her opinion.
3.4. Special circumstances
The Act contains a requirement to take account of the differing needs of persons, having regard to
matters such as their age, health and whether they have a physical, sensory, mental health or
intellectual disability. Given the number of possible variables, and the individual nature of physical
and mental health conditions and disabilities, the ISI believes this aspect is best addressed through
making allowance in these guidelines for a debtor to specify reasonable costs which arise as a
consequence of ill-health or disability5
. The PIP may request that the debtor provide appropriate
documentation in support of extra expenses related to disability, for example evidence from a
professional, such as a doctor or disability service, to support a claim for allowances in respect of
special circumstances6
.
The category of special circumstances may also be used where a debtor has persons other than his
or her minor children financially dependent on him or her, such as where the debtor is contributing
financially to the care of an adult dependent such as, for example, an elderly relative or a collegegoing
child. Any additional expense associated with the cost of having more than four children can
also be captured here. The PIP may request that the debtor provide documentation in support of
these expenses prior to recognising, under this category, the additional costs incurred in such cases.
5
In ‘A Strategy for Equality’: Report of the Commission on the Status of Persons with Disabilities (1996) the Commission
identified five areas where the cost of living for people with a disability could be higher than for people without a
disability. These are: mobility and communication, medical costs, equipment and assistive technology, care and
assistance and general living expenses.
6
In ‘Disability and the Cost of Living’: National Disability Authority (2004) the NDA concluded that while it is not possible
to come up with any reliable ‘typical’ additional cost of living related to disability, the evidence suggests that a
significant minority of people with disabilities face additional costs of living related to their disability; that those
additional costs of living can vary with the nature of the disability and its complexity or severity; and that while there
are schemes of State supports which address some of these areas of need or their costs, some people are either not
covered or have their extra needs or extra costs only partly met.
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4. Determining reasonable living expenses
The ISI has prepared the guidelines to, amongst other things, give direction to AIs and guidance to
PIPs in assessing what may be considered ‘reasonable’ in the context of reasonable living expenses
for certain purposes of the Act. The ISI recognises that reasonable living expenses will necessarily
vary depending on the debtor’s relationship status, his or her need for a vehicle, and the number and
ages of his or her children (if any). These factors have been reflected in the table schedule 1 on page
26 of these guidelines.
While reasonable living expenses have to be calculated to a mainly objective standard, it is important
that some flexibility be allowed so as to recognise and provide for the differing needs of persons;
particularly in relation to ill-health and disability. This flexibility is contemplated by the Act in section
23(3)(e).
4.1. DRNs
Section 26(2)(b) of the Act provides that to be eligible for a DRN the debtor must have a net
disposable income, calculated in accordance with subsection (5), of €60 or less a month. The Act sets
out the basis on which net disposable income is to be calculated. Essentially it is the income available
to the debtor less specified deductions, as shown below:
Figure 2: Calculation of net disposable income
Income
•Salary or wages
•Welfare benefits (other
than child benefit)
•Pension income
•Contributions from other
household members
•Any other income
Expenditure
•Reasonable living expenses
•Income tax payable
•Social insurance
contributions
•Payments of excluded
debts
•Payments of excludable
debts that are not
permitted debts
•Such other levies and
charges on the debtor’s
income as may be
prescribed
Net
Disposable
Income
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All of these income and expenditure items, other than reasonable living expenses, are a matter of
fact. What is ‘reasonable’ is an objective standard, but one open to interpretation. As contemplated
by section 23(3)(e) of the Act, it may vary from one person to another but it is fundamental to
achieving fairness and consistency in evaluating eligibility for DRNs that reasonable living expenses
be as objective as possible. It would clearly be wrong to penalise the frugal by making it easier for a
debtor to pass the test for net disposable income simply by spending more of his or her money on
anything he or she considers reasonable.
4.2. DSAs and PIAs
Section 65(2)(d) of the Act provides that a DSA shall not contain any terms which would require the
debtor to make payments of such an amount that the debtor would not have sufficient income to
maintain a reasonable standard of living for himself or herself and his or her dependants. Section
65(4) of the Act specifies that, in determining whether a debtor would have a sufficient income to
maintain a reasonable standard of living for the debtor and his or her dependants, regard shall be
had to these guidelines. Section 99(2)(e) and section 99(4) of the Act contain corresponding
provisions in respect of a PIA.
It is important that individuals in financial difficulty, who are also in employment, be given some
incentive to continue working. In the context of working debtors entering into DSAs and PIAs, such
individuals should be able to retain some of the money they are earning before the balance of their
income goes to discharge their debt.
There will be a need for PIPs to engage with creditors and debtors in order to ensure that workable
arrangements are put in place. Creditors have an interest in getting all, or at least a portion, of their
debts repaid and so have an interest in the debtor being at work, getting a financial benefit from
working and thereby having the ability to pay off a greater amount of his or her debts over a period
of time, than might otherwise be the case if they were not at work.
A balance will have to be struck between the allocation of earnings to creditors and their retention
by the debtor. This will vary from individual to individual, depending on personal circumstances,
family situation, debt levels, income, health and a range of other issues. Ultimately, where either a
DSA or a PIA is proposed, the decision on the reasonableness or otherwise of living expenses will be
a matter for the creditors to determine on a case-by-case basis in accordance with the voting
thresholds set out in section 73 or, as applicable, section 110 of the Act. This is subject to the
provision that the debtor will not be required to make payments of such an amount that he or she
would not have sufficient income to maintain a reasonable standard of living.
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4.3. Distinguishing between DRNs, DSAs and PIAs
DRN
Debt Relief Notice
DSA
Debt Settlement Arrangement
PIA
Personal Insolvency
Arrangement
Strict application of the reasonable
living expenses model in
determining the eligibility of an
applicant.
To be eligible the applicant must
have €60 or less in net disposable
income a month.
Actual expenditure would not give
reasonable results. An objective
standard must be set.
Figure 3: Differences between a DRN, DSA and PIA
Ultimately, it is a matter for the Personal Insolvency Practitioner to
determine an acceptable level of reasonable living expenses and for
creditors to agree on this and vote in favour of it.
The Act requires that the debtor have sufficient income to maintain a
reasonable standard of living. Accordingly, reasonable living expenses
should not ordinarily be at a level below that proposed under these
guidelines.
Reasonable living expenses may be higher than these guidelines
propose where acceptable to creditors. This may occur where
creditors can see value for themselves in incentivising the debtor.
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5. The approach of the ISI
In developing these guidelines, in addition to those persons the Act required the ISI to consult, the
ISI consulted with a number of other persons or bodies which the ISI considered appropriate to
consult. These included the Money Advice and Budgeting Service, the Free Legal Advice Centres, the
Vincentian Partnership for Social Justice, the Central Statistics Office, the Economic and Social
Research Institute, the Official Assignee in Bankruptcy, representatives from the financial services
sector, the Central Bank of Ireland and the Citizens Information Board.
The ISI also consulted with the Minister for Social Protection, the Minister for Finance and the
Minister for Justice and Equality as required by the Act.
Following these consultations, and bearing in mind the requirements under the Act, the ISI has
decided to use as its model (“ISI model”) a modified version of the consensual budgeting model
(“VPSJ model”) originally developed in Ireland by the Vincentian Partnership for Social Justice
(“VPSJ”)7
. The VPSJ has conducted research in Ireland for over 15 years so as to develop necessary
expenditure figures for different types of households.
In brief, these household expenditure figures are arrived at through a process of consensual
budgeting using focus groups with experts being involved where needed (such as nutritionists for the
food elements of the budgets). The approach adopted is that the standard be set at a minimum but
acceptable level. The approach of the VPSJ goes a long way to addressing the requirements set out
in section 23 of the Act. The minimum but acceptable standard which emerges from their consensual
budgeting work means that the requirement to avoid impoverishing insolvent debtors and to
facilitate both their social inclusion and economic participation is already built in.
The ISI considered some items of expenditure included in the VPSJ model not to be appropriate in
the context of personal insolvency. The ISI has adapted the VPSJ model to exclude private medical
insurance, holiday costs, having more than one car and payment of discretionary items (such as
voluntary donations). The ISI model is predicated on needs rather than wants and private health
insurance should normally be excluded on the basis that it is not a necessity. Notwithstanding this
general rule, some situations may arise where it is reasonable for a pre-existing private health
insurance policy to be kept in place.
Examples of such situations include where the employer of an applicant pays the premium or where
the applicant or a dependent has a health condition which would otherwise result in a higher
expenditure on health as compared to the insurance premium. It might also be proposed to retain a
policy where an existing medical condition would make it difficult or impossible to regain insurance
cover in the future or where an individual is of an age such that it is reasonable for a private health
insurance policy to be maintained. In such circumstances the AI or PIP may consider continuance of
7 More information on the work of VPSJ is available at http://www.budgeting.ie/
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private health insurance as an exceptional item and should include an explanatory note to that effect
in the relevant section of the application form.
Expenditures on electricity and home heating under the VPSJ model are based on a specific standard
of housing and the ISI required these coststo be more broadly applicable. The ISI has therefore opted
to use average expenditures on electricity and home heating from the Household Budget Survey for
the ISI model.
In addition, the ISI has adjusted the original model to reflect the fact that child benefit payments are,
under section 26(5)(b)(ii) of the Act, not to be included in assessing income for the purposes of
determining eligibility for a DRN. On the basis that child benefit payments are intended to be spent
on a child, child benefit has been deducted from the reasonable living expenses of a child. To do
otherwise would effectively mean double counting child benefit in the ISI model. Also, the capital
cost of a car, set at a value of €5,950-€8,500 in the original consensual budget standards model, has
been reduced to €2,000.
In choosing this model, the ISI liaised with the Central Statistics Office and the Central Bank of Ireland
and compared the output of this model to a CSO analysis of the Household Budget Survey conducted
in February 2013 and an analysis by the Central Bank of Ireland of cases in the Mortgage Arrears
Resolution Process conducted in January 2013. While certain expenditure categories may vary across
the above referenced sources, in aggregate the expenditure levels generated through the ISI model
are not materially different to the CSO or the Central Bank analyses.
The reasonable standard of living and reasonable living expenses set out in the guidelines have been
developed by the ISI in accordance with its statutory functions under the Act. The figures used in
these guidelines have unique application to personal insolvency and are not intended to be used for
purposes other than the stated purposes of these guidelines under the Act.
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6. What is consensual budgeting?
Ernst Engel, the German statistician and economist, is credited with the development of a consensual
budget standards approach in the mid 19th century8
though it was Seebohm Rowntree who
developed and popularised it in the English speaking world through his studies on poverty in York9
.
The consensual budget standards model is a form of reference budget10 based on a detailed budget
approach using focus groups. Reference budgets, by definition, refer to something, such as a
consensus arrived at by focus groups or they may refer to average consumer expenditure. The ISI
considered both of these approaches to see which would be more applicable to personal insolvency
in Ireland and determined that consensual budget standards best satisfied the requirements of the
Act.
The VPSJ consensual budget standards model is an adaptation of the Low Cost but Acceptable
standard of living constructed by the Family Budget Unit of the University of York and draws also on
the work of the Centre for Research and Social Policy at the University of Loughborough11
.
How this works in practice is that panels of ordinary people in each household type compile lists of
budget items necessary for a family to achieve a minimum acceptable standard of living. In a series
of sessions, members of the focus groups separately arrive at a negotiated consensus about the
goods and services a household requires, in order to obtain a minimum standard of living. Experts
are consulted so asto ensure that the negotiated consensus meets basic criteria such as, for example,
nutritional standards.
Each focus group consists of between eight and 12 people from a mixture of social and economic
backgrounds, and represents the household under consideration e.g. focus groups of parents with
children determine the minimum requirements of such households. In order to ensure reliability and
validity three different focus groups are separately established for each household type.
8
Parker, H.: Low Cost but Acceptable: A Minimum Income Standard for the UK: Families with Young Children (Policy
Press, 1998).
9 Rowntree B.S., Poverty: A Study of Town Life (MacMillan & Co., 1901).
10 Reference budgets are also sometimes known as ‘budget standards’, ‘standard budgets’ or ‘example budgets’.
11 Further information on the methodology used is available online at http://www.budgeting.ie/
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Each focus group acts as their own budget standard committee where ‘the actual expenditure choices
and judgements that are made by people in real life on the ground, as they manage their money
contributes to the final consensus’12 on minimum essential living standard requirements. Experts are
consulted when necessary (e.g. nutritionists and energy experts).
There are four phases in the focus group stage of the consensual budget standards process13:
Figure 4: The four phases in the focus group stage
6.1. Orientation Phase
The initial phase explores the language, concepts and priorities that people use in thinking about
spending and consumption. During this phase, the group develops a working definition of a minimum
essential standard of living and identifies the difference between needs and wants.
6.2. Task Groups
In this phase, each budget component is considered in turn (i.e. food, clothing, personal care,
household goods, household services, social inclusion, fuel, transport etc). Each item is then
categorised as essential, desirable or luxury. Together, the participants produce an agreed list of
essential items.
Two groups are involved at this phase. The second task group examines the consensus of the first
task group and makes any necessary changes by adding to or subtracting from the list of the first
group.
6.3. Costing Phase
The items agreed by the focus group are costed by the researchers to compile a minimum essential
budget. Up to two thousand individual items are priced.
12 (Middleton, 2000: 62-3).
13 For a more detailed description of Consensual Budget Standards see Middleton, S. (2000) and Bradshaw et al., (2008).
Orientation Task
Groups
Costing
Phase
Check-back
Phase
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6.4. Check-back Phase
The final phase involves the rechecking of items and costs in order to reach a final consensus. Firstly,
participants are asked whether they think the amount allocated to provide the agreed list of items is
too high or too low. Secondly, the group is asked how much they would be prepared to reduce the
budget.
Where appropriate, these lists are checked by experts (e.g. nutritionists), and where there are
difficulties (with nutritional standards, for example), these are reported to subsequent groups who
are able to amend the budgets if necessary. The budgets include both material possessions and the
cost of activities and services required for social participation.
Focus groups have put a strong emphasis on ensuring that families do not just have basics like food
and shelter, but also can afford a minimum of social participation that is necessary to have an
acceptable living standard14
.
The VPSJ has observed that focus groups have been very clear in their view that a minimum standard
of living is neither a survival standard nor a standard for people in poverty; rather it is a standard of
living that should allow for people to engage in activities that are considered the norm for Irish
society.
This approach to a reasonable standard of living corresponds to that set out in section 23(3)(f) of the
Act which requires the social inclusion of debtors and their dependents and their active participation
in economic activity in the State to be facilitated.
14 This experience is not confined to Ireland. A similar finding is reported from research done in the Netherlands in which
focus groups were described as ‘consistent in that they all explicitly set aside an amount for social participation. Under
this we include hobbies and sports for both adults and children, holidays, going out, going visiting (including giving gifts)
and receiving visitors (including celebrating birthdays)’. ‘The Minimum Agreed Upon – Consensual budget standards for
the Netherlands’, The Netherlands Institute for Social Research and the National Institute for Family Finance Information,
(Utrecht, 2010) at page 148.
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7. Transparency, consultation and debate
The use of the consensual budgeting method brings with it a high degree of transparency. Every item
of expenditure has been listed and costed. Professor Jonathan Bradshaw of the University of York in
a foreword to the initial 2004 Irish research observed that ‘all budget standards are derived using a
combination of science and normative judgement’ and that inevitably ‘there will be arguments about
the Vincentian Irish budget standards’15
.
Discussion and debate on the question of what constitutes reasonable living expenses is to be
welcomed and it should be borne in mind that changes can be made to these guidelines from time
to time by the ISI where sound reasons exist to support such changes.
The ISI is committed under section 23(6) of the Act to issuing guidelines at least every year and under
section 23(5) to making them available to the public on its website. The guidelines may be revised
from time to time to take account of new issues and new circumstances that arise as experience of
operating the Act develops.
The following sections 7.1 and 7.2 are provided for the purpose of transparency. As a general
principle, the ISI wishes to see debtors retaining the autonomy to make their own choices as to what
is best for them, though necessarily within the constraints of reasonableness and the overall
expenditure limits. Thus, while the focus groups have decided that cable or satellite television
subscriptions are not necessary and that allowance for a SAORVIEW approved set-top-box or
television is sufficient, a debtor may choose to retain such a subscription by prioritising it within his
or her budget.
So long as an applicant for one of the three personal insolvency processes under the Act comes within
the overall headline figure for reasonable living expenses, the ISI will not be prescriptive in terms of
what the applicant can or cannot spend their money on.
Only where an applicant spends in excess of what is considered to be reasonable under these
guidelines will it become necessary for the AI or PIP to look at his or her spending across the
categories of expenditure.
15 Bradshaw in ‘Low Cost but Acceptable Budgets for Three Households’, VPSJ (2004) at page 11.
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7.1. Household expenditure allowances
The focus groups (discussed on pages 15 – 17) reach a consensus view on the reasonable needs of
particular household types. Once these reasonable needs are established, each item is then costed
to derive a figure representing reasonable living expenses. The headline figure for reasonable living
expenses is made up of 16 main categories, listed below.
1. Food
2. Clothing
3. Personal Care
4. Health
5. Household Goods
6. Household Services
7. Communications
8. Education
9. Transport
10. Household Energy
11. Insurance
12. Savings and Contingencies
13. Social Inclusion and Participation
14. Housing
15. Childcare
16. Special Circumstances
Reasonable Living Expenses
Set Costs Housing
Special
circumstances
Childcare
Figure 5: The main categories of expenditure
Icons designed by Freepik
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Figure 6 on page 21 sets out the main categories of expenditure and gives a short overview of the
types of goods and services contained within each category of expenditure. As outlined earlier, the
ISI has modified some of the categories by eliminating some specific expenditure items on the basis
that they were unsuitable in the context of personal insolvency16
.
The ISI has reconfigured the weekly figures to present them on a monthly basis. This was done to
achieve consistency with the requirement contained in section 26(2)(b) of the Act that the net
disposable income of a debtor must amount to €60 or less a month in order to be eligible to apply
for a DRN.
Housing, childcare and special circumstances costs have been kept out of the expenditure categories
(set costs) within the ISI model of reasonable living expenses. Given the number and variety of
housing situations and childcare options possible as well as the variance of any special circumstances,
the ISI considers these items are best treated by including the actual costs of an applicant where
these are reasonable.
Under the provisions for either a DSA or a PIA, a PIP is to have regard to the costs likely to be incurred
by the debtor by remaining in occupation of his or her principal private residence. Where the PIP
forms the opinion that the costs of continuing to reside in the debtor’s principal private residence
are disproportionately large he or she will not be required to formulate a proposal on the basis of the
debtor continuing to occupy the property.
An applicant seeking a DRN will generally not be the owner of the property in which he or she is living
given the eligibility requirement that the assets of an applicant, including real property, must be
worth no more than €400.
Regardless of whether the debtor owns or rents their principal private residence, the same principle
should apply that he or she should only have to consider surrendering the property where the costs
of continuing to reside in it are disproportionately large as may occur, for example, where the size of
the property exceeds the needs of the debtor and his or her dependants.
The ISI considers it appropriate to avoid being overly prescriptive in setting out reasonable housing,
childcare or special circumstances costs, choosing instead to specify matters to which a PIP or an AI
should have regard in determining the reasonableness of these costs of a debtor.
16 The full content of the expenditures categories included by the focus groups in the consensual budgets can be found
on the website www.budgeting.ie.
Version 7–July 2017 Page 21 of 35
Expenditure
category
A guide to what is included in each expenditure category.
Food The expenditure on food is based on a balanced, nutritious diet.
Clothing Clothing and footwear for all seasons, including accessories.
Personal Care Personal hygiene and grooming items.
Health Medications, and visits to a General Practitioner, Optician, Dentist, etc. It also includes small
items such as plasters, antiseptic, and over-the-counter medicines.
Household Goods Furniture, appliances, cleaning products, etc. Single adults of working age living in an urban
area are assumed to be living in a rented furnished studio apartment.
Household Services Vital household related services such as waste charges, water charges, getting an annual
boiler service and having chimneys swept.
Communications Telephone, postage and basic internet.
Education The minimum education needs of a household as decided by the focus groups. This category
includes uniforms, books and stationery where applicable and adult education.
Transport The cost of a car is allowed where public transport is inadequate to get to work, school and
the local shop.
Household Energy Electricity and home heating fuel. Electricity and heating costs come from the CSO Household
Budget Survey.
Insurance Home insurance and car insurance where a car is needed. Note that the ISI model does not
ordinarily include private health insurance though this may be included in some
circumstances where warranted.
Savings and
Contingencies
Savings and life assurance (for households with dependents). For a single person, savings at
€5 a week are assumed as is €5 a week to be put aside for contingencies and emergencies17
.
Social Inclusion and
Participation
This includes sports activities and social events such as visits to the cinema. The ISI model
does not factor in the cost of a holiday.
Housing The cost of renting or making mortgage payments. Variable – subject to PIP or AI assessing
cost to be reasonable.
Childcare The cost of full or part-time childcare. This is dependent on the employment status of the
adults in the household as well as the age of the child. Variable – subject to PIP or AI assessing
cost to be reasonable.
Special
Circumstances
The additional costs associated with debtor specific cases such as additional medicine/health
costs associated with a physical or mental condition or the cost of caring for an elderly
relative. Variable – PIP or AI may seek evidence of these costs.
Figure 6: The main categories of expenditure with a description of each
17 In the alternative any relatively small but unforeseen event might well cause the failure of an insolvency arrangement
since a person in an insolvency arrangement will likely have only limited access to credit. This savings allowance may
also assist in preventing people on low incomes being cut off from sources of regulated credit.
Version 7–July 2017 Page 22 of 35
7.2. Table of reasonable living expenses
7.2.1. Using the table
The costs attributed to a typical household in these guidelines are termed ‘set costs’. To these are
added the reasonable costs of housing, childcare and special circumstances where these arise.
This produces the total for reasonable living expenses for the household.
Where only one adult resides in the household, the reasonable living expenses for that adult and
any dependents will be fully attributed to that adult.
Where two adults reside in the household then it will be presumed that the reasonable living
expenses of the household are split equally between them, though a debtor may rebut this
presumption and produce evidence to show that he or she pays a different proportion of these
reasonable living expenses.
Where adults reside together in a house-sharing arrangement, the reasonable living expenses of
the debtor should be based on those of a single person. In such cases, the AI or PIP should assess
the reasonableness of the rent based on the portion which the debtor pays rather than the rent
of the property.
7.2.2. Step 1: Set costs – household composition
The AI or PIP should begin by selecting the option which best fits the situation of the applicant
based on household composition i.e. whether or not the applicant is the only adult in the
household and whether or not the applicant has children. The set costs of a household are
compiled by totalling the costs for each individual in the household. For households with children,
the AI or PIP should first identify the costs for the adult(s).
To this the set costs for any children are added. These should correspond to the age group of that
child. Where there are three or more children in the household, an adjustment will need to be
made to capture the additional costs associated with the larger households.
Version 7–July 2017 Page 23 of 35
7.2.3. Step 2: Set costs – need for a motor vehicle
If the household does not have a motor vehicle and does not need a motor vehicle this will usually
mean the applicant lives in an urban location with adequate public transport links. The AI or PIP
should choose the vehicle option based on the needs of the household (needs, not wants). Where
a car or motor vehicle is not included, the model includes costs associated with the use of public
transport.
7.2.4. Step 3: Reasonable costs of housing and childcare
Under the ISI model, childcare costs and housing costs are added to the total for set costs to
produce the final figure for reasonable living expenses.
Where childcare or housing costs are paid for, the AI or PIP should assess the reasonableness of
these expenses taking into account the factors outlined earlier under the heading ‘Childcare and
housing costs’ in section 3.3 of these guidelines. The AI or PIP should support his or her assessment
as to the reasonableness of childcare and housing costs by reference to the matters he or she has
taken into account in arriving at this opinion.
7.2.5. Step 4: Special circumstances
The Act contains a requirement to take account of the differing needs of persons, having regard
to matters such as their age, health and whether they have a physical, sensory, mental health or
intellectual disability. Given the number of possible variables, and the individual nature of physical
and mental health conditions and disabilities, the ISI believes this aspect is best addressed through
making allowance in these guidelines for a debtor to specify reasonable costs which arise as a
consequence of ill-health, age or disability.
The category of special circumstances may also be used where a debtor has persons other than
his or her minor children financially dependent on him or her, such as where the debtor is
contributing financially to the care of an adult dependent such as, for example, an elderly relative
or a college-going child. It should not be used for everyday expenses as these expenses are
captured in the ‘set costs’ table in Schedule 1: Table of Reasonable Living Expenses.
Version 7–July 2017 Page 24 of 35
7.3. Note in relation to Child Age Groups
For the purposes of these guidelines, infant means a child between the ages of 0-2 years old
inclusive, preschool means a child three years of age, primary school means a child between the
ages of 4-11 years old inclusive and secondary school means a child between the ages of 12-18
years old inclusive.
7.4. Note in relation to Child Benefit
Child Benefit is deducted from the set costs for each child. Child benefit payments are, under
section 26(5)(b)(ii) of the Act, not to be included in assessing income for the purposes of
determining eligibility for a DRN. On the basis that child benefit payments are intended to be spent
on a child, child benefit has been deducted from the reasonable living expenses of a child. To do
otherwise would effectively mean double counting child benefit in the ISI model.
7.5. Note on overall total set costs
So long as a debtor comes within the overall headline figure for reasonable living expenses, the ISI
will not be prescriptive in terms of what the applicant may or may not spend their money on.
Applying this principle, regard should be paid to the overall total of what is termed in these
guidelines ‘total set costs’ expenditures rather than to each of the expenditure categories making
up this total.
The overall total set costs is allowed as a minimum for reasonable living expenses without any
need to ensure that an individual applicant confines his or her spending to the total for each
expenditure category.
However for the purpose of information and transparency, a break down of the category totals
for each household type is provided in Appendix B: Detailed breakdown of RLE Table.
Version 7–July 2017 Page 25 of 35
Schedule 1 – Table of Reasonable Living Expenses
Monthly figures
Car required?
Household composition Adult Set Costs
Single Adult (No Children)
€938.14 €1,050.48
Couple (No Children)
€1,509.59 €1,486.62
Single Adult (With Children)
€944.71 €1,096.15
Couple (With Children)
€1,373.63 €1,420.83
Icons designed by Freepik Children Set Costs
Infant
€232.26 €232.26
Pre-school
€68.52 €56.27
Primary School
€209.37 €197.12
Secondary School
€422.16 €409.91
Note in relation to children’s costs – Some additions are applied if your family has
more than two children. In addition to their set costs, approximately €10 extra each
for the third and fourth child are added. The exact amounts are listed in Appendix B
and will be captured by your AI or PIP and by our online calculator
Version 7–July 2017 Page 26 of 35
8. Appendix A: Section 23 of Personal Insolvency Act 2012
23.—(1) The Insolvency Service shall, for the purposes of sections 26, 65(4)and 99(4)and section 85D (as
inserted by section 157)of the Bankruptcy Act 1988, prepare and issue guidelines as to what
constitutes a reasonable standard of living and reasonable living expenses.
(2) Before issuing guidelines under subsection (1), the Insolvency Service shall consult with the Minister,
the Minister for Finance, the Minister for Social Protection and such other persons or bodies as the
Insolvency Service considers appropriate or as the Minister may direct.
(3) In preparing guidelines to be issued under subsection (1), the Insolvency Service shall have regard
to—
(a) such measures and indicators of poverty set out in Government policy publications on
poverty and social inclusion as the Insolvency Service considers appropriate,
(b) such official statistics (within the meaning of the Statistics Act 1993) and surveys relating to
household income and expenditure published by the Central Statistics Office as the
Insolvency Service considers appropriate,
(c) the Consumer Price Index (All Items) published by the Central Statistics Office or any equivalent
index published from time to time by that Office,
(d) such other information as the Insolvency Service considers appropriate for the
performance of its functions under this section,
(e) differences in the size and composition of households, and the differing needs of persons,
having regard to matters such as their age, health and whether they have a physical, sensory,
mental health or intellectual disability, and
(f) the need to facilitate the social inclusion of debtors and their dependants, and their active
participation in economic activity in the State.
(4) Guidelines issued under subsection (1) may provide examples of
(a) expenses that may be allowed as reasonable living expenses,
and
(b) expenses that may not be allowed as reasonable living expenses.
(5) The Insolvency Service shall make guidelines issued under subsection (1) available to members of the
public on its website.
(6) Subject to subsection (7), the Insolvency Service shall issue guidelines under subsection (1) at intervals
of such length, not being more than one year, as it considers appropriate.
(7) Failure by the Insolvency Service to comply with subsection (6) shall not render invalid for the purposes
of this Act the guidelines most recently issued by it under this section.
Version 7–July 2017 Page 27 of 35
9. Appendix B: Detailed breakdown of RLE Table
One Adult no car One Adult with car
From July 2017
MONTHLY
Food € 250.98 € 250.98
Clothing € 35.34 € 35.34
Personal Care € 33.06 € 33.06
Health € 31.34 € 31.34
Household Goods € 26.38 € 26.38
Household Services € 32.54 € 32.54
Communications € 41.21 € 41.21
Social Inclusion & Participation € 126.10 € 126.10
Education € 23.72 € 23.72
Transport € 149.70 € 237.79
Household Electricity € 60.37 € 60.37
Home Heating € 70.80 € 70.80
Personal Costs € 0.97 € 0.97
Home Insurance € 12.25 € 12.25
Car Insurance € 0.00 € 24.25
Savings & Contingencies € 43.38 € 43.38
Total set costs € 938.14 € 1,050.48
Version 7–July 2017 Page 28 of 35
Couple no car Couple with car
From July 2017
MONTHLY
Food € 369.37 € 369.37
Clothing € 67.00 € 67.00
Personal Care € 73.70 € 73.70
Health € 49.39 € 49.39
Household Goods € 30.71 € 30.71
Household Services € 40.87 € 40.87
Communications € 61.70 € 61.70
Social Inclusion & Participation € 232.47 € 232.47
Education € 38.13 € 38.13
Transport € 287.05 € 238.26
Household Electricity € 73.30 € 73.30
Home Heating € 106.65 € 106.65
Personal Costs € 1.93 € 1.93
Home Insurance € 12.25 € 12.25
Car Insurance € 0.00 € 25.82
Savings & Contingencies € 65.07 € 65.07
Total set costs € 1,509.59 € 1,486.62
Version 7–July 2017 Page 29 of 35
Two parent No car
From July 2017
Child Age Groups Additional
supplement if more
than two children
MONTHLY
Adult Infant PreSchool
Primary Secondary Third
Child
Fourth
Child
Food € 283.21 € 135.44 € 105.11 € 162.43 € 215.88
Clothing € 66.73 € 71.99 € 21.86 € 29.90 € 54.44
Personal Care € 64.90 € 46.51 € 6.09 € 11.74 € 36.43
Health € 45.17 € 35.98 € 18.85 € 18.60 € 24.50
Household Goods € 67.63 € 45.58 € 11.78 € 13.17 € 16.04
Household Services € 40.87 € 0.00 € 0.00 € 0.00 € 0.00
Communications € 61.56 € 0.00 € 0.00 € 0.00 € 20.48
Social Inclusion &
Participation
€ 158.02 € 7.72 € 10.04 € 49.58 € 93.33
Education € 10.34 € 0.00 € 0.00 € 29.16 € 66.27
Transport (Public) € 250.00 € 0.00 € 12.25 € 12.25 € 12.25
Household Electricity € 112.39 € 6.30 € 0.00 € 0.00 € 0.00
Home Heating € 114.46 € 0.00 € 0.00 € 0.00 € 0.00
Personal Costs € 1.91 € 1.05 € 0.85 € 0.85 € 0.85
Home Insurance € 17.59 € 0.00 € 0.00 € 0.00 € 0.00
Car Insurance € 0.00 € 0.00 € 0.00 € 0.00 € 0.00
Savings & Contingencies € 78.85 € 21.69 € 21.69 € 21.69 € 21.69
Total before deductions € 1,373.63 € 372.26 € 208.52 € 349.37 € 562.16
LESS child benefit € 0.00 -€ 140.00 -€ 140.00 -€ 140.00 -€ 140.00
Total set costs € 1,373.63 € 232.26 € 68.52 € 209.37 € 422.16 € 10.81 € 10.27
Version 7–July 2017 Page 30 of 35
Two parent with car
From July 2017
Child Age Groups Additional
supplement if more
than two children
MONTHLY
Adult Infant PreSchool
Primary Secondary Third
Child
Fourth
Child
Food € 283.21 € 135.44 € 105.11 € 162.43 € 215.88
Clothing € 66.73 € 71.99 € 21.86 € 29.90 € 54.44
Personal Care € 64.90 € 46.51 € 6.09 € 11.74 € 36.43
Health € 45.17 € 35.98 € 18.85 € 18.60 € 24.50
Household Goods € 67.63 € 45.58 € 11.78 € 13.17 € 16.04
Household Services € 40.87 € 0.00 € 0.00 € 0.00 € 0.00
Communications € 61.56 € 0.00 € 0.00 € 0.00 € 20.48
Social Inclusion &
Participation
€ 158.02 € 7.72 € 10.04 € 49.58 € 93.33
Education € 10.34 € 0.00 € 0.00 € 29.16 € 66.27
Transport (Private) € 250.50 € 0.00 € 0.00 € 0.00 € 0.00
Household Electricity € 112.39 € 6.30 € 0.00 € 0.00 € 0.00
Home Heating € 114.46 € 0.00 € 0.00 € 0.00 € 0.00
Personal Costs € 1.91 € 1.05 € 0.85 € 0.85 € 0.85
Home Insurance € 17.59 € 0.00 € 0.00 € 0.00 € 0.00
Car Insurance € 46.70 € 0.00 € 0.00 € 0.00 € 0.00
Savings & Contingencies € 78.85 € 21.69 € 21.69 € 21.69 € 21.69
Total before deductions € 1,420.83 € 372.26 € 196.27 € 337.12 € 549.91
LESS child benefit € 0.00 -€ 140.00 -€ 140.00 -€ 140.00 -€ 140.00
Total set costs € 1,420.83 € 232.26 € 56.27 € 197.12 € 409.91 € 10.81 € 52.72
Version 7–July 2017 Page 31 of 35
One parent No car
From July 2017
Child Age Groups Additional
supplement if
more than two
children
MONTHLY
Adult Infant PreSchool
Primary Secondary Third
Child
Fourth
Child
Food € 222.51 € 135.44 € 105.11 € 162.43 € 215.88
Clothing € 35.33 € 71.99 € 21.86 € 29.90 € 54.44
Personal Care € 31.40 € 46.51 € 6.09 € 11.74 € 36.43
Health € 29.20 € 35.98 € 18.85 € 18.60 € 24.50
Household Goods € 62.37 € 45.58 € 11.78 € 13.17 € 16.04
Household Services € 32.54 € 0.00 € 0.00 € 0.00 € 0.00
Communications € 41.07 € 0.00 € 0.00 € 0.00 € 20.48
Social Inclusion &
Participation
€ 99.31 € 7.72 € 10.04 € 49.58 € 93.33
Education € 10.34 € 0.00 € 0.00 € 29.16 € 66.27
Transport (Public) € 125.00 € 0.00 € 12.25 € 12.25 € 12.25
Household Electricity € 86.08 € 6.30 € 0.00 € 0.00 € 0.00
Home Heating € 91.45 € 0.00 € 0.00 € 0.00 € 0.00
Personal Costs € 0.95 € 1.05 € 0.85 € 0.85 € 0.85
Home Insurance € 17.59 € 0.00 € 0.00 € 0.00 € 0.00
Car Insurance € 0.00 € 0.00 € 0.00 € 0.00 € 0.00
Savings & Contingencies € 59.57 € 21.69 € 21.69 € 21.69 € 21.69
Total before deductions € 944.71 € 372.26 € 208.52 € 349.37 € 562.16
LESS child benefit € 0.00 -€ 140.00 -€ 140.00 -€ 140.00 -€ 140.00
Total set costs € 944.71 € 232.26 € 68.52 € 209.37 € 422.16 € 10.81 € 10.27
Version 7–July 2017 Page 32 of 35
One parent with car
From July 2017
Child Age Groups Additional
supplement if more
than two children
MONTHLY
Adult Infant PreSchool
Primary Secondary Third
Child
Fourth
Child
Food € 222.51 € 135.44 € 105.11 € 162.43 € 215.88
Clothing € 35.33 € 71.99 € 21.86 € 29.90 € 54.44
Personal Care € 31.40 € 46.51 € 6.09 € 11.74 € 36.43
Health € 29.20 € 35.98 € 18.85 € 18.60 € 24.50
Household Goods € 62.37 € 45.58 € 11.78 € 13.17 € 16.04
Household Services € 32.54 € 0.00 € 0.00 € 0.00 € 0.00
Communications € 41.07 € 0.00 € 0.00 € 0.00 € 20.48
Social Inclusion &
Participation
€ 99.31 € 7.72 € 10.04 € 49.58 € 93.33
Education € 10.34 € 0.00 € 0.00 € 29.16 € 66.27
Transport (Private) € 250.04 € 0.00 € 0.00 € 0.00 € 0.00
Household Electricity € 86.08 € 6.30 € 0.00 € 0.00 € 0.00
Home Heating € 91.45 € 0.00 € 0.00 € 0.00 € 0.00
Personal Costs € 0.95 € 1.05 € 0.85 € 0.85 € 0.85
Home Insurance € 17.59 € 0.00 € 0.00 € 0.00 € 0.00
Car Insurance € 26.40 € 0.00 € 0.00 € 0.00 € 0.00
Savings & Contingencies € 59.57 € 21.69 € 21.69 € 21.69 € 21.69
Total before deductions € 1,096.15 € 372.26 € 196.27 € 337.12 € 549.91
LESS child benefit € 0.00 -€ 140.00 -€ 140.00 -€ 140.00 -€ 140.00
Total set costs € 1,096.15 € 232.36 € 56.27 € 197.12 € 409.91 € 10.81 € 52.72
Version 7–July 2017 Page 33 of 35
10. Glossary
AI
Approved Intermediary; these are part of a network of
qualified
debt advice professionals appointed by the ISI to deal
with DRNs and are experts in the area of debt advice.
Bankruptcy payments order
A Court order made under section 85D of the
Bankruptcy Act 1988. If you have money left over after
reasonable living expenses have been deducted, you will
have to contribute that remaining money to the Official
Assignee for a period of up to 5 years and they will
transfer it to your creditors. This is known as a
Bankruptcy Payment Order.
CSO
Central Statistics Office; the function of the CSO is the
collection, compilation, extraction and dissemination for
statistical purposes of information relating to economic,
social and general activities and conditions in the State.
ECCE
Early Childhood Care and Education; The free Pre-School
Year in ECCE programme was introduced in January
2010. Children qualify for the free pre-school year
where they are aged more than three years two months
and less than four years seven months at 1 September in
the relevant pre-school year.
DRN
Debt Relief Notice; A DRN is a formal agreement that
allows you to write off your debt in full. If you have a
low income, few assets and debts of less than €35,000
that you can’t repay, then a DRN could be the right
solution for you. http://backontrack.ie/drn
DSA
Debt Settlement Arrangement; A DSA is a formal
agreement with all your creditors that will write off
some of your debt. If you have unsecured debt such as
credit cards, loans and overdrafts, a DSA could be the
right choice for you. http://backontrack.ie/dsa/
ISI Insolvency Service of Ireland
ISI model
A modified version of the consensual budgeting model
originally developed in Ireland by the Vincentian
Partnership for Social Justice.
Version 7–July 2017 Page 34 of 35
PFS
Prescribed Financial Statement; this form captures
details of your financial situation. Your chosen PIP will
help you complete a PFS.
PIA
Personal Insolvency Arrangement; A PIA is a formal
agreement with all your creditors that will write off
some of your unsecured debt and restructure any
remaining secured debt. A key feature of a PIA is that, in
the majority of cases, a debtor will be able to remain in
their home. http://backontrack.ie/pia
PIP
Personal Insolvency Practitioner; PIPs are qualified
professionals, regulated by the ISI, with the relevant
expertise to help you reach a permanent solution for
your debt problems. http://backontrack.ie/publications
PRTB
Private Residential Tenancies Board. Reports produced
by the PRTB can be used by AIs and PIPs to help them
determine the reasonableness of housing costs being
paid by debtors. The PRTB was established in 2004 to
operate a national tenancy registration system and to
resolve disputes between landlords and tenants.
PSRA
Property Services Regulatory Authority. Reports
produced by the PRSA can be used by AIs and PIPs to
help them determine the reasonableness of housing
costs being paid by debtors. The main function of the
Authority is to control and regulate Property Services
Providers (i.e. Auctioneers/Estate Agents, Letting Agents
and management Agents).
The Act Personal Insolvency Act 2012
VPSJ
Vincentian Partnership for Social Justice; the
VPSJ consists of the Society of St. Vincent de Paul, the
Vincentian Congregation, the Daughters of Charity and
the Sisters of the Holy Faith. The Vincentian Partnership
was established in 1996 to work for social and economic
change tackling poverty and exclusion.
VPSJ model
A consensual budgeting model originally developed in
Ireland by the VPSJ on which the ISI based its model.
Version 7–July 2017 Page 35 of 35
Insolvency Service of Ireland
Phoenix House
Conyngham Road
Dublin 8
D08 T3CK
Phone: 0761 064 200
Email: rle@isi.gov.ie
Website: www.isi.gov.ie
ISI Guidelines on Reasonable Living Expenses 2022
1 Reasonable Living Expenses
The ISI believes that you are entitled to a reasonable standard of living while you address your debt problem. If you tackle your debt using one of the ISI’s solutions, there is a minimum standard of living that you are entitled to which allows for expenses such as food, clothing, health, household goods and services, communications, socialising, education, transport, household energy, childcare, insurance and modest allowances for savings and contingencies.
The ISI considers that a reasonable standard of living is one which meets your physical, psychological and social needs. It does not mean that you should live at a luxury level but neither does it mean that you should only live at subsistence level. You should be able to participate in the life of the community, as other citizens do.
It follows that ‘reasonable living expenses’ (“RLEs”) are the expenses you will necessarily incur in achieving a ‘reasonable standard of living’. RLEs will vary depending on a number of factors such as the particular composition of a household and the need for a motor vehicle. These expenses are termed “set costs” under the guidelines. Beyond that, when determining RLEs, provision needs to be made for reasonable housing costs in terms of rent or mortgage payments as well as for reasonable payments in respect of childcare where this expense arises and reasonable insurance costs, namely motor vehicle, home and mortgage protection insurance costs.1 When determining a person’s RLEs the approved intermediary (“AI”) or personal insolvency practitioner (“PIP”) should rely on the building blocks shown in Figure 1 below:
1 Motor vehicle and home insurance costs were added as “other costs” on foot of a public consultation in 2021.
Set costs include necessities such as food, clothing, transport, utilities and social participation as well as other categories which have been identified by the ISI as necessary to maintain a reasonable standard of living.
Housing (mortgage or rent payments) and childcare costs vary across the country and cannot be applied universally like the set costs.
In response to the 2021 public consultation feedback the ISI decided to expand the building blocks constituting RLEs through the removal of ‘motor vehicle and home insurances’ from the set cost category into a new standalone category. This category will be used to reflect the actual costs of motor vehicle and home insurances.
The Personal Insolvency Act contains a requirement to take account of the differing needs of people, in regard to matters such as their age, health and whether they have a disability. In order to satisfy that requirement, any special circumstances you may have will also be added to your set costs. Examples of such circumstances may include caring for an elderly relative who is financially dependent or having a college going child.
‘Set costs’ (household composition/need for a motor vehicle), reasonable costs for housing, childcare, motor vehicle and home insurances costs and special circumstances now make up the total RLE for a given household.
The AI or PIP will gather relevant documentation as part of their due diligence and have a responsibility to ensure, insofar as possible, that costs are reasonable based on the individual circumstances of the debtor(s). These AIs and PIPs are qualified professionals, appointed and regulated by the ISI, with the relevant expertise to help you reach a permanent solution for your debt problems. They will advise you of all the products, options and solutions available to get you back on track financially.
2 How are the figures arrived at?
Bearing in mind the requirements under the Act set out above, the ISI decided to use as its model (“ISI model”) a modified version of the consensual budgeting model originally developed in Ireland by the Vincentian Partnership for Social Justice (“VPSJ”). From 2022, the MESL research is continuing by the Vincentian MESL Research Centre at the St. Vincent de Paul. 2They conduct extensive research in the area using a consensual budgeting approach. This entails people forming focus groups and separately determining what they need to spend their money on to achieve a reasonable standard of living.
The ISI model allows for food for a nutritionally balanced diet, clothing, personal care, health, household goods, household services, communications, social inclusion and participation, education, transport, household energy, insurance and modest allowances for savings and contingencies. The ISI model is based on the VPSJ model but is not identical.
3 Set Costs table
The Set Costs Table at 3.2 below covers most household types and all child age groups.
The figures are monthly and any amendments made to child benefit in annual budgets have been taken into account.
3.1 Children’s Costs
Some additions are applied if your family has more than two children. In addition to their set costs, an adjustment for the third and fourth child are made. The exact amounts are listed in our background information document and will be captured by your AI or PIP.
If you have more than six children any additional expenses (beyond the set costs of the children) should be captured under the special circumstances category.
2 More information on the work of the Vincentian MESL Research Centre at the St. Vincent de Paul is available at http://www.budgeting.ie/.
3.2 Set Costs Table
Monthly Figures Motor Vehicle required?
Household composition Adult Set Costs
Single Adult (No Children) €1,084.93 €1,296.02
Couple (No Children) €1,764.37 €1,897.62
Single Adult (With Children) €1,065.88 €1,354.51
Couple (With Children) €1,506.58 €1,700.34
Children Set Costs
Infant €216.51 €216.51
Pre-school €72.36 €72.36
Primary School €245.15 €233.45
Secondary School €454.58 €442.88
4 Examples
4.1 Couple with Childres
Mary and Stephen live in Cobh, Co Cork in a three bedroom house which they rent for €800 per month. Mary requires a car to get to work and drop the kids to school as public transport is inadequate for their needs. Mary and Stephen’s motor vehicle insurance is €400 and home contents insurance is €150
They have three children; twins, Marley and Bonnie who are six years old and in primary school and a 13 year old daughter, Martina, who is in secondary school. Martina has learning difficulties and requires additional tuition. This costs €200 per month.
4.1.1 Example 1b: Couple with children (split RLEs)
This example uses the same family scenario as 4.1 with the exception that Stephen is in employment and contributing to the household expenditure needs. Mary and Stephen’s motor vehicle insurance is €400 and home contents insurance is €150
For the purposes of calculating Mary’s reasonable living expenses it is presumed that she and Stephen split all payments 50:50. As such her RLEs are calculated as before, and then divided by two to obtain Mary’s RLE.
* includes adjustment for third child
4.1.2 Example 1c: Couple with children (split RLEs)
This example uses the same family scenario as 4.1. The presumption that costs are split equally can be rebutted by Mary and the RLE will be adjusted accordingly. Mary and Stephen’s motor vehicle insurance is €400 and home contents insurance is €150
Mary will have to provide her AI or PIP with some evidence that she pays more (or less) of the RLEs. For example, evidence that Stephen only works part time meaning she has to pay more of the expenses, making the split 70:30.
* includes adjustment for third child
4.2 Example 2: Single Adult (with children)
Jason lives in Dublin 5 in a two bedroom apartment which he rents for €1,200 per month. He does not require a car as public transport is adequate for his needs. Jason’s home contents insurance is €200..
He has one child, Mark, who is five years old and in primary school. Jason shares joint custody of Mark and can claim 50% of the cost of a primary school child.
As Jason works full time he requires childcare for Mark after school for two hours per day on the days he has access which is ten school days per month. This costs Jason €400 per month.
4.3 Example 3: Single Adult (no children)
Lorna lives in Dublin 9 in a three-bedroom house which she shares with flatmates. The rent for the entire house is €1,400 per month and Lorna pays €500 per month for her room. She requires a car as her job is in an industrial estate with no transport links. She has no children. Lorna’s motor vehicle insurance is €500 and home contents insurance is €50
As Lorna is in a house share situation she is seen as a single adult and allowed her portion of the rent, rather than the full rent for the entire house.
5.1 FAQs
5 . 1 W H A T ’ S T H E P O I N T O F RLE S ?
The ISI believes that you are entitled to a reasonable standard of living while you address your debt problem. If you tackle your debt using one of the ISI’s solutions, there is a reasonable standard of living that you are entitled to. The RLEs cover the costs of this standard and includes housing, utilities, food, transport and other needs. They help to determine if you are eligible to apply for a DRN and help PIPs to determine the level of spare income available for your creditors.
5 . 2 H O W D O E S I T P R O T E C T M E ?
You are entitled to a reasonable standard of living for the duration of your arrangement. Under the ISI model, this means a higher standard than merely living at a subsistence level, which people often exist on when in debt.
You will not be told how you should spend your allocated reasonable living expenses, so you are still in complete control of your spending.
The RLE set a standard that has been accepted by creditor and debtor groups. The RLEs ensure that you have enough money to be able to participate in the community. Your AI or PIP will go through all of this with you.
5 . 3 C A N I R E A L L Y L I V E A T T H I S L E V E L ?
Yes. The reasonable living expenses figure is often higher than the amount people in serious debt live on before seeking an insolvency solution. The ISI believes that all debtors should be able to participate in the community, as others do.
You will not be told how you should spend your allocated reasonable living expenses, and it will be managed by you so you are still in control of your spending. As long as you still make your agreed payments under an arrangement you can spend your money however you like.
5 . 4 W H A T A R E S P E C I A L C I R C U M S T A N C E S ?
Special circumstances cover instances where your family may have higher than normal expenditure due to a variety of reasons. This can include the care of an elderly relative who is financially dependent or a college-going child. It can also be utilised if you or your dependants have a requirement for additional medical costs or equipment or if you have more than six children. Normal everyday items should not be included in this category.
Detailed information on the research behind these guidelines and an in depth category breakdown can be found in the background information document on the website of the ISI www.isi.gov.ie.
Cases
Hurley (a debtor)
; Phelan (a debtor),
Re [2019] IEHC 523 (15 July 2019)
JUDGMENT of Mr. Justice Denis McDonald delivered on 15 July, 2019
Introduction
1. The central issues which arise in each of the above appeals are essentially the same, namely:-
(a) whether it is lawful, under a Personal Insolvency Arrangement, to require the debtors and their dependants to live, for a period of time, at a level below the reasonable living expenses set out in guidelines published by the Insolvency Service of Ireland (” ISI “); and
(b) even if it is lawful for an arrangement to proceed on that basis, whether the arrangements proposed here can be said to be sustainable.
2. In each case, an application was made to the Circuit Court pursuant to s. 115A of the Personal Insolvency Act 2012 (” the 2012 Act “), as amended by the Personal Insolvency (Amendment) Act 2015 (” the 2015 Act “) seeking an order confirming the coming into effect of a Personal Insolvency Arrangement proposed by the Personal Insolvency Practitioner (” the practitioner “), acting on behalf of the debtor. In each case, the application was refused by the learned Circuit Court Judge and the practitioner has appealed to this Court. Similarly, in each case, the original application and the appeal have been opposed by the secured creditor holding security over the principal private residence of the debtors. In the case of the interlocking applications made on behalf of Mr. Tadgh Hurley and Ms. Sinead Hurley, the secured creditor concerned is the Governor and Company of the Bank of Ireland (” the Bank of Ireland “). In the case of Ms. Michelle Phelan, the secured creditor is Allied Irish Banks plc (” AIB “). Although both Bank of Ireland and AIB raise additional issues in each case, the principal grounds of opposition are that it is not lawful for an arrangement to require debtors and their dependants to live beneath the reasonable living expenses set out in the ISI guidelines and that, even if it is lawful to do so, any such arrangement would clearly be unsustainable. Insofar as the latter point is concerned, the secured creditors argue that under s. 115A(9)(c) of the 2012 Act, the court is not entitled to confirm a proposed arrangement unless the court is satisfied, having regard to all relevant matters (including the financial circumstances of the debtor) that the debtor is reasonably likely to be able to comply with the terms of the proposed arrangement. Some reliance was also placed on s. 115A(9)(b)(ii) under which the court must be satisfied that the proposed arrangement will enable the debtors to resolve their indebtedness without recourse to bankruptcy. In substance, these are opposite sides of the same coin. Both provisions require the court to consider the sustainability of the proposed arrangements.
Relevant Facts
3. Mr. Hurley and Ms. Hurley are a married couple with four children. They are jointly indebted to the Bank of Ireland in respect of a mortgage loan secured on their family home. At the time the Protective Certificates were issued by the Circuit Court, the amount due on foot of the mortgage loan was €377,484.05. In addition, they owed a further sum of €195,551.61 to the Bank of Ireland on foot of an unsecured loan, being the residual debt after a mortgaged investment property was sold in 2014. Mr. Hurley is employed as a technician. Ms. Hurley works in the home. Mr. Hurley is 45 years of age. Ms. Hurley is 42. Their eldest child is in third level education. Their remaining children are aged 15, 13 and 11.
4. Prior to the economic downturn, Mr. and Ms. Hurley had invested in a number of investment properties which, at that time were affordable. However, as a consequence of the economic downturn, Mr. Hurley’s salary was reduced and he was placed on a four day working week. This had a significant impact on the finances of the family and left them in a position where they struggled to meet their financial commitments. Among the investments they had made prior to the downturn, was a holiday property in France which is the subject of security held by BNP Paribas (” BNP “) on foot of a secured loan. BNP is owed €321,078.00. Mr. and Ms. Hurley also own an unencumbered investment property in Bulgaria which, it is suggested, is worth €20,000.
5. The market value of the family home is €220,000. The market value of the property in France is €237,000.00. In these circumstances, both properties are in what is colloquially known as negative equity.
6. The interlocking arrangements proposed in the case of Mr. and Mrs. Hurley involve the following:-
(a) a twelve month term;
(b) the outstanding balance of the mortgage loan debt secured on the family home would be written down to €242,000.00 with the remaining balance of €135,484.00 being written off on the payment of a dividend in the sum of €5,033.00 to Bank of Ireland;
(c) the mortgage loan (written down as set out at (b) above) would be restructured by extending its term to 29 years, fixing the interest rate at 1.25% for the twelve month duration of the arrangements (resulting in a monthly mortgage payment of €829.00) following which the interest rate would revert to the existing tracker rate made up of the ECB rate plus a margin of 1.00% for the remaining 28 years of the mortgage term;
(d) the unsecured debt owed to the bank on foot of the residential investment property would be written off on payment of a dividend in the sum of €7,264.00;
(e) there would also be a payment of dividend at the same rate to the other unsecured creditors;
(f) the property in France would be surrendered to BNP. In circumstances where BNP did not prove its debt, no dividend will be paid to it;
(g) the practitioner would be paid total fees for both cases of €5,052.00; and
(h) the dividends to the unsecured creditors and the fees to the practitioner would all be funded from the proceeds of the property in Bulgaria which is said to be worth €20,000.
7. As noted above, the amount to be paid to Bank of Ireland in respect of its mortgage debt will be €829.00 per month (albeit this might vary somewhat after the twelve month duration of the proposed arrangements in the event that the ECB rate either increases or decreases after that time). At the time the arrangement was first proposed to the creditors, the payment of €829 per month did not create a difficulty based on (a) the total household income of the family and (b) the level of expenses which the ISI guidelines suggest a family of their size and age would likely incur. In this context, the net total household income of the family is €3,246.00 per month. At the time the arrangements were first proposed in 2017, the monthly expenses of the family (excluding the mortgage payment) was put at €2,236.00. This was based on a two adult household with a vehicle and three dependants aged 13, 11 and 9. This figure is derived from the Table of Reasonable Living Expenses published by the ISI in Guidelines issued by it under s. 23 of the 2012 Act (addressed in more detail below). As of 2017, two of the children of the family were still in primary school. Only one of them was in secondary school. Under the ISI guidelines, the monthly cost of maintaining a child in secondary school is recognised as being greater than the monthly cost of maintaining a child in primary school. Thus, in the context of items such as food, clothing, personal care, health, household goods, communications, social inclusion and participation and education, the monthly cost to a family of having a child in secondary school is pegged at a higher rate under the Guidelines than the equivalent monthly cost for a child in primary school.
8. At the time the arrangements were proposed in July 2017, the monthly costs for the family (based on two children in primary school and one child in secondary school) were €2,234.98 per month. However, by the following year (2018), the household expenses were due to increase by €212.79 per month to €2,447.77 when their second youngest child turned 12 and entered secondary school. Their costs will remain at that level for 2019. Notably, when their youngest child (on reaching 12 years of age) enters secondary school in 2020, their monthly costs will increase by a further €212.79 to €2,660.56 per month. The monthly expenditure will remain at that level until 2023 when the second eldest child (i.e. their eldest currently dependent child) turns 19 and will no longer be accounted for in accordance with the ISI guidelines. When the monthly mortgage payment of €829 is added to this monthly figure of €2,660.56, this would bring the monthly family expenditure to €3,489.56. This is greater than the total household income of €3,246.00 per month. Accordingly, the only way in which the family can meet their mortgage payments for the years 2020 to 2023, is to live at a level below the reasonable living expenses set by the ISI for a two adult household with a vehicle and three dependent children in secondary school. It is in these circumstances that the issues described in para. 1 above arise in the case of Mr Hurley and Ms Hurley.
9. In the case of Ms. Phelan, she is separated with one dependent child. She is a factory worker. She previously had her own corner shop business which, unfortunately, encountered financial difficulties causing her to cease trading in 2015. Following the closure of that business, she was left with a number of trade creditors. She was also out of work for a short period. As a consequence of this (and as a consequence of her marriage breakdown) she fell into arrears. However, since she has now secured employment, she seeks to put an arrangement in place with her creditors and return to solvency. She is 43 years old.
10. Ms. Phelan is indebted to AIB in the sum of €170,268.48 on foot of a number of facilities including a mortgage loan on her principal private residence, a current account and a business loan. For completeness, it should be noted that part of her indebtedness is to AIB itself and part is to AIB Mortgage Bank. Insofar as the mortgage loan is concerned, she is jointly liable on this loan in the sum of €161,131.29. However, the value of that home is no more than €95,000. In her case, the proposed arrangement involves the following features:-
(a) The amount due in respect of the loan secured on her family home will be reduced to the value of the property namely €95,000. The balance of €66,131 will be written off subject to payment of the dividend described in subpara. (c) below.
(b) For the duration of the proposed 72 month term of the arrangement, the interest on the mortgage loan will be fixed at 3.65%. However, it was confirmed, in the course of the hearing, that it would revert to a variable rate after the expiry of the arrangement.
(c) The unsecured creditors would each be paid a dividend of 10 cent in the euro. This includes AIB who would be paid a total dividend of €6,323 in respect of the unsecured element of the mortgage loan (after taking account of the current market value of the family home). In addition, AIB would be paid a total of €873 in respect of the other liabilities of Ms. Phelan to it.
(d) Of Ms. Phelan’s net monthly income of €2,149.00, €443 would be paid to AIB on foot of the mortgage loan. In addition, for the first five years of the arrangement, a sum of €200 would be paid by Ms. Phelan to fund the dividends to be paid to the unsecured creditors and the fees of the practitioner. In the sixth year, a sum of €656 per month would be paid in respect of dividends and fees. By that stage, her youngest child will have finished secondary school. On the basis of the ISI guidelines, the monthly living expenses (currently €1,506.00 for a family comprising one adult, a dependent child and a motor vehicle) will reduce to €1,050.00.
11. On the basis of the figures described in para. 10 above, it might appear that, under the proposed arrangement, Ms. Phelan’s monthly expenditure for her ordinary living expenses will not drop beneath the level set in the ISI guidelines. However, in addition to the payments described above, Ms. Phelan has ongoing obligations to make monthly payments in respect of a hire purchase agreement entered into by her in May 2015, in order to acquire a VW Polo motor car which, she says, is essential in order to commute to and from her place of work and also to bring her youngest child to and from school. In the affidavit sworn by her on 11th July, 2018, during the course of the Circuit Court proceedings, she said that she will make the monthly hire purchase payment of €227 per month out of her set living costs (i.e. the monthly expenses set out in the ISI Guidelines exclusive of the mortgage repayment) until the end of the hire purchase arrangement which is due to be completed in 2020. It is in these circumstances that the issues described in para. 1 above arises in the case of Ms. Phelan. In common with Bank of Ireland in the case of Mr. and Ms. Hurley, this is not the only issue raised by AIB in respect of the proposed arrangement. However, for convenience, I will deal first with the questions (common to both cases) identified in para. 1 above. To the extent that it is necessary to do so, I will then turn to consider the remaining issues in both cases.
The Legal Position in relation to Reasonable Living Expenses
12. Section 115A(8)(a)(ii) of the 2012 Act (as amended) provides that, before proceeding to consider an application to confirm the coming into effect of an arrangement, the court must be satisfied (inter alia) that each of the mandatory requirements referred to in s. 99 of the 2012 Act have been complied with. Section 99 of the 2012 Act lays down a series of mandatory requirements concerning Personal Insolvency Arrangements. These include the requirement set out in s. 99(2)(e) that a Personal Insolvency Arrangement:-
“…shall not contain any terms which would require the debtor to make payments of such an amount that the debtor would not have sufficient income to maintain a reasonable standard of living for the debtor and his or her dependants.”
13. For this purpose, s. 99(4) provides that:-
“…in determining whether a debtor would have sufficient income to maintain a reasonable standard of living for the debtor and his or her dependants under the … Arrangement, regard shall be had to any guidelines issued under section 23.”
14. Under s. 23(1) of the 2012 Act, the ISI is required, for the purposes ( inter alia ) of s. 99(4) to prepare and issue guidelines as to what constitutes a reasonable standard of living and reasonable living expenses. Section 23(3)(f) provides that, in preparing such guidelines, the ISI shall have regard to a number of matters including ” the need to facilitate the social inclusion of debtors and their dependents and their active participation in economic activity in the State”.
15. Although the Bank of Ireland and AIB have framed their arguments in slightly different terms, the nub of the submission made by both parties is the contention that an arrangement of this kind cannot lawfully contain a term which would require the debtor to make payments of an amount which would result in the debtor having insufficient income to maintain a reasonable standard of living in accordance with the guidelines set by the ISI under section 23. Both parties have sought to rely, in this context, on an observation made by Baker J. in Jacqueline Hayes [2017] IEHC 657, at para. 28 where she said that the statutory restriction contained in s. 99(2)(e):-
“…prohibits formulation of a proposal which provides for expenditure below the RLE within the period of the PIA. It does not prohibit a scheme by which a debtor might on current known figures live below the RLE guidelines outside the 6-year term of the PIA. The legislation is formulated to govern spending within the 6-year window as the purpose of the PIA to give breathing space to enable a return to solvency by an insolvent debtor.”
16. Having regard to the decision of Clarke J. (as he then was) in Worldport Ireland Limited (In Liquidation) [2005] IEHC 189, and the subsequent decision of the Supreme Court in Kadri v. Governor of Wheatfield Prison [2012] IESC 27, if that observation of Baker J. forms part of the ratio of her decision in Jacqueline Hayes , I would clearly be required to follow the same approach here save in the very limited circumstances described by Clarke J. in Worldport . It is, therefore, necessary to consider the status of that observation made by Baker J.
17. In my view, it is clear from a consideration of the judgment of Baker J. in that case that the observation made by her (as quoted above) was obiter . In particular, it is clear from para. 40 of her judgment that there was no evidence in that case that the debtor would have to live below the reasonable living expenses set by the ISI during the currency of the arrangement. There was no more than a danger that the debtor might have to do so in year 18 of the term of the mortgage (which was well after the term of the proposed arrangement had expired). In those circumstances, the observation of Baker J. cannot be said to form part of the ratio decidendi of her decision. It is well settled that the ratio decidendi includes only those statements contained in a judgment that are part of the essential basis for reaching the decision of the court. Where, on the facts of Jacqueline Hayes , there was no issue that the debtor would have to live below reasonable living expenses during the currency of the arrangement, the observation made by Baker J. in para. 28 of her judgment cannot be said to form part of the ratio of her decision. Accordingly, I am of opinion that, notwithstanding my own preference to defer to the judgments of Baker J, I am free to consider the arguments made by the parties in this case and that I am equally free to take a different view to that suggested by Baker J., on an obiter basis in para. 28 of her judgment. In this context, I have had the benefit of very detailed submissions (both written and oral) in relation to the issue described in para. 1(a) above. I think it is unlikely that a similar level of argument was addressed to Baker J. in Jacqueline Hayes on this specific issue. In the first place, the specific issue did not arise on the facts of that case. Secondly, the judgment of Baker J. does not record that any detailed argument was made to her in relation to the proper interpretation of s. 99 of the 2012 Act.
18. It may seem incongruous that secured creditors (whose interests lie in enforcing their security against the property of the debtors) should raise any issue in relation to a debtor living below the level of the reasonable living expenses set by the ISI. I should make it quite clear that the concerns expressed on behalf of the secured creditors here are not motivated by any altruistic solicitude for the debtors. The secured creditors obviously wish to defeat the applications to approve the arrangements. They are also motivated by a concern (addressed further below) that the debtors will be driven to default on their obligations under the arrangements (in particular the obligation to make ongoing payments on foot of the mortgage loans) in the event that they are required to live at a level which is below the reasonable living expenses set by the ISI. Counsel for the practitioner has argued that the requirements in relation to reasonable living expenses are for the protection of debtors rather than creditors and that it should not be open to creditors to raise issues of this kind. Counsel argued that the provisions of s. 99(2)(e) should be seen as a shield for the debtor rather than a sword for the secured creditors. I fully understand why counsel for the practitioner should make this argument. However, notwithstanding the obvious incongruity involved, I can see nothing in the 2012 – 2015 Acts which would prohibit the secured creditors from raising and arguing this issue. In my view, they are entitled to do so – just as they are entitled to raise any other issue (as to alleged non-compliance with any of the statutory pre-conditions to the grant of relief under s. 115A) that may assist them in defeating an application which they believe to be contrary to their interests. The fact is that the Oireachtas has made it a precondition to the grant of relief under s. 115A that the requirements of s. 99 (including the requirements of s. 99(2)(e) dealing with a reasonable standard of living) are satisfied. In circumstances where the grant of relief under s. 115A is capable of having serious consequences for a creditor holding security over the principal private residence of a debtor, such a creditor is plainly entitled to raise arguments that address whether the preconditions to the grant of relief under s. 115A have or have not been satisfied.
19. While I accept that the secured creditors are entitled to raise the issue, I have come to the conclusion that they are mistaken in their contention that the arrangements here are contrary to the requirements of s. 115A(8)(a)(ii) and s. 99(2)(e) of the 2012 Act. In my view, it is clear from a consideration of the relevant statutory provisions that they do not go so far as to prohibit any arrangement that may have the effect of requiring a debtor to live below the reasonable living expenses set by the ISI. A consideration of the relevant statutory provisions makes this clear.
20. In the first place, s. 99(2)(e) does not, by its terms, prohibit an arrangement which would have the effect that a debtor will be required to live at a level below the reasonable living expenses set by the ISI pursuant to s. 23 of the Act. It would have been a relatively straightforward matter for s. 99(2) to so provide. Instead, what the subsection prohibits is an arrangement where the debtor would not have sufficient income to ” maintain a reasonable standard of living for the debtor and his or her dependants” (emphasis added). This is debtor specific. It is, therefore, necessary to consider the particular personal circumstances of the individual debtor concerned and of his or her dependants.
21. Secondly, the debtor specific language is continued in s. 99(4) which also speaks of a “sufficient income to maintain a reasonable standard of living for the debtor and his or her dependants” (emphasis added). Furthermore, s. 99(4) does not require that a ” reasonable standard of living ” must be measured at the level set by the ISI in its guidelines. What s. 99(4) requires is that, in determining whether a debtor would have sufficient income to maintain a reasonable standard of living for himself or herself and his or her dependants, “regard shall be had to any guidelines issued under s. 23 ” (emphasis added). This plainly requires that regard should be given to the guidelines and that they must be taken into account but it does not go so far as to require that, in every case, the reasonable standard of living for a particular debtor and his or her family will always equate to that set in the ISI guidelines. It permits a determination to be made, in an individual case, that a reasonable standard of living for a particular debtor and his or her family may be set at a different level to that suggested by the guidelines. But obviously such a determination would only be appropriate where a court can be satisfied, on the evidence, that, in the particular circumstances of an individual debtor, it is appropriate to do so. In circumstances where the Oireachtas requires that regard be had to the guidelines, a court would have to be satisfied that there is a proper basis, in an individual case, to make a determination that a particular debtor and his or her dependants can reasonably live at a level which is below that set by the guidelines.
22. There is nothing in s. 23 of the 2012 Act that, in my view, requires a different approach to be taken. Under s. 23(1), the ISI is placed under a statutory obligation to prepare and issue guidelines as to what constitutes a reasonable standard of living and also guidelines in relation to reasonable living expenses. Under s. 23(2), the ISI is required to consult with the Minister for Justice and Equality, the Minister for Finance, the Minister for Social Protection and such other persons or bodies as the ISI thinks appropriate. Under s. 23(3), the ISI is required to have regard to a number of very important factors in preparing the guidelines including differences in the size and composition of households, the differing needs of persons (having regard to their age, health and whether they have a disability) and the need to facilitate the social inclusion of debtors and their dependents and their active participation in economic activity in the State.
23. It is important to keep in mind that what s. 23 envisages is the formulation of guidelines. The very fact that they are referred to as ” guidelines ” is of some significance. By its very nature, a guideline is a guide as to how to proceed. It is to be distinguished from an instruction or a prescription. The Oireachtas chose to proceed in this way. The ISI could have been empowered to proceed by way of statutory instrument prescribing a minimum standard of universal applicability. In particular, the ISI could have been directed by statute to fix what constitutes a reasonable standard of living and the Oireachtas could equally have prescribed that all arrangements would be required to adhere to that standard. As outlined in para. 22 above, that is not what the Oireachtas directed. Instead, it directed that guidelines would be issued by the ISI and that regard should be had to those guidelines. To my mind, that very clearly stops short of requiring strict adherence to the guidelines in every case. That is not to say that the guidelines can be readily departed from. Given the very important role given to the ISI under s. 23 of the 2012 Act and the extensive nature of the exercise carried out by it in their formulation, the guidelines provide an essential yardstick by reference to which an objective assessment can be made as to what is an appropriate standard of living in any individual case for a debtor and his or her dependants. Ultimately, an individual assessment must be made in each case by reference to the guidelines but the language of the Act stops short of requiring that, in all cases, a debtor must have disposable income at or above the level set in the guidelines. This reflects the reality that some households are more resourceful than others and are able to have a full and rewarding family life at a more modest cost than others.
24. In all of the circumstances, I have come to the conclusion that there is nothing in the 2012 Act which goes as far as to prohibit the formulation of proposals for an arrangement under which a debtor might, for a period of time, have to live at a level below that set in the guidelines as to reasonable living expenses set by the ISI. That is not, however, the end of the inquiry. Having regard to the language of the statutory provisions discussed above, it will always be necessary to have regard to the ISI guidelines in determining, in any individual case, whether debtors will have a sufficient income, under a proposed arrangement, to maintain a reasonable standard of living for them and their respective dependants. That is the question to which I now turn in the context of the present appeals.
Will the debtors have a sufficient income to maintain a reasonable standard of living?
25. Having regard to the considerations discussed in paras. 22 to 24 above, it is necessary to consider very carefully the guidelines which have been issued by the ISI. In August 2018, the ISI issued two explanatory documents entitled ” Guidelines on Reasonable Standard of Living ” and ” Reasonable Living Expenses Background Information “. On p. 4 of the latter document, the ISI states:-
“Guidelines on a reasonable standard of living and reasonable living expenses are essential to the process of moving towards long-term restructuring measures in that they enable the debt servicing capacity of a distressed debtor to be calculated in a fair and consistent manner so that the sustainability of repayments can be established. The guidelines safeguard a minimum standard of living so as to protect debtors while facilitating creditors in recovering all, or at least a portion, of the debts due to them.”
26. On p. 6, the ISI states that a reasonable standard of living does not mean that a person should live at a luxury level (on the one hand) or at a subsistence level (on the other). A debtor should be able to participate in the life of the community, to eat nutritious food, to have clothes for different weather and situations, to maintain a home and to be able to devote some time to leisure activities. On p. 7, the ISI stresses that reasonable living expenses will vary depending on a number of factors such as the particular composition of a household and the need for a car. On p. 8, it notes that a car will be required where a debtor needs it to travel to and from work and where there is not an adequate public transport system in place. Importantly, on p. 10, the ISI recognises that reasonable living expenses will necessarily vary depending on a number of factors including the debtor’s relationship status, the need for a vehicle, and the number and ages of any children. The ISI also stresses on the same page that, while reasonable living expenses have to be calculated on a mainly objective standard ” it is important that some flexibility be allowed so as to recognise and provide for the differing needs of persons…”
27. In the course of the hearing of the appeal in the case of Mr and Ms Hurley, counsel for the practitioner drew attention to what is said on p. 12 of the Background Information document where, the ISI state that, in the context of a Debt Relief Notice, there must be strict application of the reasonable living expenses model set out in the Guidelines in determining the eligibility of an applicant. In contrast, when dealing with debt settlement arrangements and personal insolvency arrangements, the ISI state:-
“Ultimately, it is a matter for the …Practitioner to determine an acceptable level of reasonable living expenses and for creditors to agree on this and vote in favour of it.
The Act requires that the debtor have sufficient income to maintain a reasonable standard of living. Accordingly, reasonable living expenses should not be at a level below that proposed under these guidelines.
Reasonable living standards may be higher than these guidelines propose where acceptable to creditors. This may occur where creditors can see value for themselves in incentivising the debtor.”
28. Counsel for the practitioner submitted that the extract shows that the ISI itself envisages that a reasonable standard of living does not invariably equate to the level suggested in the guidelines. Counsel stressed in this context the reference to ” reasonable living expenses should not ordinarily be at a level proposed under these guidelines ” (emphasis added).
29. In the case of Mr. Hurley and Ms. Hurley, the guidelines envisage that a couple in their position, should have available to them (in the context of an arrangement) available income to the tune of €2,447.77 per month in the current year and €2,660.56 per month until 2023, in order to meet their living expenses. The reason why they require more available income in the current and following years is that another child will pass from primary to secondary school later this year. As noted above, having regard to their obligation to make payments of €829 per month in respect of the mortgage loan, they would require to have a net monthly income of €3,489.56, if they were to be in a position to live at the level contemplated by the ISI guidelines and also discharge their obligations in relation to the mortgage debt. That is more than their net monthly income of €3,246.00. Accordingly, in order to meet the monthly repayments of €829 in respect of the mortgage loan, the Hurley family, in the period between 2020 and 2023, will have to live at €245.56 per month less than the figure of €2,660.56 set out in the ISI guidelines. Counsel for the Bank of Ireland argued that it could not be said in these circumstances, that Mr. Hurley and Ms. Hurley will have sufficient income to maintain a reasonable standard of living and that, as a consequence, the requirements of s. 99(2)(e) have not been satisfied in their case.
30. When this issue was first raised on affidavit by Bank of Ireland, a detailed response was provided by Mr. Hurley in an affidavit sworn by him on 25th October, 2018, in the course of the proceedings before the Circuit Court where he said:-
“7. …my wife is not in a position to get a part time job in circumstances where our nine year old son has developed Diabetes and requires constant care everyday. He is dependent on her and he has to get daily injections 5 – 6 per day and my wife gives them to him.
8. I say that we have been in receipt of income supplement for a number of years and this will continue going forward.
9. I say … that if I am not successful in having a PIA approved then repossession proceedings … is imminent for my family home. I say and it would appear that I do not have a defence to same … in circumstances where the PIA process may come to an end, save that I have a PIA which I understand gives a better outcome than repossession, a better outcome than bankruptcy and complies with the objectives of the Personal Insolvency Acts. It therefore appears that without the … PIA I will be evicted from my family home and made homeless.
10. I say that my reasonable standard of living … in my PIA is appropriate, adequate, and realistic in the circumstances. Since 2008, my family and I have been reducing our living expenses and spending in an effort to retain our family home. I say that we live modestly, carefully considering our shopping choices over the last number of years and we have streamlined the family finances and spendings.
11. I say and believe in the drafting of the PIA, we did not have to drop or reduce our spending to enable payment to the PIA. We did not need to adopt a new standard of living. Whilst I accept that the [ISI] have set out what they consider to be a set of guidelines that they believe represent a reasonable standard of living, unfortunately for many people, including my family, those guidelines are, aspirational.
12. I say that in addition to the above, the reality of a standard of living must be viewed in my alternative… If I am not successful in [this] … application then my ‘standard of living’ is in reality going to be as a homeless person. Whilst this may initially seem dramatic, a PIA and the … Guidelines … must… be viewed in relation to the reality of the alternative. If I do not succeed in having my PIA approved, then it is foreseeable that our family home is at risk of repossession.
…
14. In light of the above, it is clear that my ‘reasonable standard of living’ is best maintained and protected in my own family home. Each family and each person will have a different ‘reasonable standard of living’ depending on their standing, their income and what they have become accustomed to. With that, we live within our means to ensure our family standard of living in our own home is maintained … I say, for the avoidance of any doubt, that this is not a newly adopted position in light of the 115A process but rather an active choice and position that we have maintained since we engaged with [a practitioner] in about 2017.”
31. These averments on the part of Mr. Hurley are strongly corroborated by the pattern of payments which have been made by him and his wife since July 2016. In the 25-month period running from July 2016 to July 2018 (both months inclusive) Mr. and Ms. Hurley made 25 payments of €930 each to Bank of Ireland. According to what I was told at the hearing before me in April 2019, those payments have continued since July 2018 at the same rate. It should be noted that this payment of €930 is higher than the amount payable monthly under the proposed arrangement. Thus, for the past three years, the Hurley family have shown that they can live, on a consistent and prolonged basis, at a net income figure of less than the reasonable living expenses set by the ISI as appropriate for a two adult household with three dependent children and a motor car. At the time proposals for an arrangement were drawn up in this case in 2017, the relevant figure for reasonable living expenses (measured by reference to the ISI guidelines) was €2,236.00. The total household income was (as before) €3,246.00. In circumstances where they were paying €930 every month to Bank of Ireland, that left them with no more than €2,116 by way of net income from which to meet their living costs. Having lived on that basis in 2017 and 2018, the position of the family has deteriorated further in the current year when, as noted in para. 29 above, they should have available to them income of the order of €2,447.77 per month in order to meet their reasonable living expenses as measured by the ISI (following the further child entering secondary school). Nonetheless, they have continued to make payments at the rate of €930 per month. The very fact that the Hurley family have succeeded in living at a level less than the I.S.I. guidelines for a three-year period shows that they are clearly a very resourceful family who are well capable of economising and living within their means. As the ISI, in its Background Information document makes clear at p. 11, a reasonable standard of living may vary from one person to another. The guidelines (which have been adopted after very careful consideration by the ISI) provide an invaluable objective yardstick against which reasonable living expenses can be measured. Nonetheless, some people are capable of being more frugal and resourceful than others and the Hurley family have shown that they fall within this category.
32. In the course of the hearing, it was argued on behalf of Bank of Ireland that there is no material in the affidavits sworn by the practitioner and by Mr. Hurley which identifies which elements of the items listed in the guidelines would be foregone by the debtors. It was submitted on behalf of Bank of Ireland that it was incumbent on Mr. Hurley and Ms. Hurley to explain what specific cut-backs and economies they had made. In this context, it should be noted that the guidelines set out monthly allowances for spending on a range of items encompassing everything from food and clothing to household goods and services, transport, heating and electricity, insurance, savings and contingencies, education, communications and social inclusion and participation. It was argued in particular that it would be injurious to the family if they had to cut down on, for example, social inclusion and participation. However, there is a lack of reality to that submission. For a family in the position of the Hurleys, they have to make a choice as to whether they can, by economising, live for a three year period at a level beneath the ISI guidelines or lose their home. In his affidavit (quoted above), Mr. Hurley explains in graphic terms the stark choice facing him and his family. As noted above, they have shown, by their actions to date, that they are capable of living beneath the level of the ISI guidelines. I do not believe that it makes any difference, in the context of this case, how (or in what areas) the economies or cut-backs are achieved. The fact is that the Hurley family have been able to make the necessary adjustments to their living costs to continue making substantial payments to Bank of Ireland notwithstanding that the payments made mean that they are living on an income beneath that measured by the ISI to be appropriate. For them to lose their home would be far more injurious to them as a family unit than, for example, cutting back to some extent on social inclusion and participation or on other elements of the items specified in the guidelines. By cutting back and economising in that way, they will be able to keep their home and thereby maintain a stable family life. The uncontradicted evidence in the case is that the cost of renting a similar property in the area in which they live would be significantly higher than the repayments envisaged under the proposed interlocking arrangement. The evidence is that the cost of alternative accommodation would work out at €1,450 per month. That is manifestly not affordable to the Hurley family. If the Hurley family had to pay rent at that level, it would have a devastating impact on their disposable income. They would be left with €1,796.00 per month to discharge their ongoing living costs. This is very significantly less than the figure measured by the ISI as reasonable living expenses for a family in their circumstances. Accordingly, there is very real substance to the suggestion made by Mr. Hurley in his affidavit that, if the family were to lose their present home, they could well find it impossible to secure alternative accommodation at a rent they could afford with the result that they would be made homeless. The recent report of the Ombudsman for children (dealing with children’s experience of living in family hubs) makes sobering reading. The loss of the family home would be much more injurious to the family than making cutbacks for a period of three years in their living costs.
33. As explained by Mr Hurley in his affidavit (quoted in para. 30 above), the family live modestly. He says that they have economised by, inter alia, carefully considering their shopping choices. The court does not live in a vacuum. I am aware from my own life experience that simple cost cutting measures can significantly improve a family budget. I am conscious that, for example, savings can be made on energy costs by switching utilities’ suppliers on a periodic basis. More importantly, with regard to expenditure on food, significant savings can be made by taking the trouble to shop around. Similar measures can be taken when it comes to expenditure on clothes. The twice yearly sales in clothing shops also provide additional opportunities to make savings. With regard to the significant “back to school” costs incurred by families every year as children move from class to class or from primary to secondary education, the Competition and Consumer Protection Commission (“CCPC”) offers invaluable advice as to the simple and straightforward steps which can be taken by families to reduce outgoings. The CCPC also offers advice on reducing the cost of after school activities. Thus, it is possible for a family to live modestly while still equipping themselves with the necessities of life and ensuring that children can participate in social activities. I therefore accept the evidence given by Mr Hurley on affidavit. I am accordingly satisfied that, when the individual circumstances of Mr. Hurley and Ms. Hurley are taken into account, they will be able to maintain a reasonable standard of living for themselves and their family under the proposed arrangements. By proceeding in this way, Mr. Hurley and Ms. Hurley will have the ability to resolve their current insolvency and secure the future for themselves and their family.
34. In these circumstances, I have come to the conclusion that there is a proper evidential basis in the present case to conclude that, even having regard to the ISI guidelines, the arrangement, in the case of Mr. and Ms. Hurley, does not contain any terms that would require them to make payments of such an amount that they would not have a sufficient income to maintain a reasonable standard of living for themselves and their three children of school-going age. I have, therefore, come to the conclusion that the requirement set out in s. 115A(8)(a)(ii) is satisfied insofar as the s. 99(2)(e) criterion is concerned.
35. It is next necessary to consider whether the same criterion is satisfied in the case of Ms. Phelan. In her case, the evidence in relation to her ability to appropriately provide for herself and her child at a level beneath the reasonable living expenses recommended by the ISI is not as detailed as in the case of Mr. Hurley and Ms. Hurley. In an affidavit sworn by the practitioner on 9th March, 2017, the following is stated:-
“10. … I have considered the need for the Debtor to contribute the sum of €227 per month in order to make payments under a hire purchase agreement. I say … that the motor vehicle is required in order to allow the Debtor travel to and from her place of employment and to maintain the income that she requires both to fund her reasonable living expenses and to fund contributions towards her mortgage and other creditors. I say and believe that the payment of €227 per month is not excessive and appears reasonable in the circumstances where it generates and facilitates the Debtor being an active member of the working community and being employed so as to make contributions to the arrangements.
11. …I have considered the reduction needed in the Debtor’s reasonable living expenses in light of the said payments and I am of the belief that the reduction is not sufficient as to cause either the Debtor financial difficulty or cause difficulty to the arrangement.
12. …I have discussed… reasonable living expenses post payment of the hire purchase with the Debtor and I have been informed to my satisfaction that the sum of €1,050 is sufficient for the debtor to live on on a monthly basis.
13. I am instructed that this is the case due to the fact that the…dependent child will be an adult and the… reasonable living expenses will reduce [as] a result of this.
14. I say and believe that the Debtor has support from family lodgers and has provided evidence and proof of the said support to me. I say and believe that the Debtor has a history of renting the said premises and remains happy and content to do so in order to facilitate her repayment capacity and the retention of her family home…”.
36. In her own affidavit sworn on 11th July, 2018, Ms. Phelan says:-
“13. …it is correct to set out that I have a hire purchase arrangement… in relation to a small VW Polo and I entered into the hire purchase agreement in May, 2015. I say and believe that the car was necessary in circumstances where I had to have a reliable vehicle in order to commute to and from my place of work and also to bring my youngest child to and from school and to extracurricular activities. For the purpose of the arrangement, I will make a monthly hire purchase payment from [my] set living costs until the end [of the] hire purchase arrangement. I say and believe that the purchase of the car [by hire purchase] was necessary in 2015 due to the fact that I was not in a position to buy a car outright with a lump sum payment.
14. …this payment does not impinge on the return for creditors. As can be seen from my overall circumstances I am making every effort to run a household, provide for my children, and pay my creditors”.
37. While this evidence is not as detailed as in the case of Mr. and Ms. Hurley, it must be considered in conjunction with Ms. Phelan’s payment history. In the course of the hearing before me, I was provided, by agreement of the parties, with an up to date statement of the mortgage account running from December, 2015 to May, 2019. While the payment record prior to December, 2016 was extremely poor, regular payments resumed in 2016 when two payments totalling €575.00 were paid. In January, 2017, €363 was paid. In February, 2017, €491.45 was paid. In March, 2017, a total of €553.50 was paid. In April, 2017, a total of €360 was paid. In May, 2017, a total of €492 was paid. In June, 2017, €552.90 was paid. In July, 2017, a similar sum was paid. In August, 2017, €553.08 was paid. Thereafter, in each of September, October, November and December, 2017, sums of €550 or just above that figure were paid. In January, 2018, €633 was paid. In February, 2018, €533 was paid. In March, 2018, €633.23 was paid. In April, 2018, €533.17 was paid. In May, 2018, €483.00 was paid. In June, 2018, €633.30 was paid. In July, 2018, €533.37 was paid. In August, 2018, €482 was paid. In September, 2018, €510 was paid. In November, 2018, €433 and on December, 2018, €483 was paid. The only exception was October, 2018, when the only payment made was €33.64. In 2019, Ms. Phelan made payments of €422.38 in January, 2019, €422.44 in February, 2019, €22.49 in March, 2019, €472.54 in April, 2019 and €420 on 3rd May, 2019. Thus, with the exception of March, 2019, Ms. Phelan made significant monthly payments in 2019. On average, in the 30 month period between December 2016 and May 2019, Ms. Phelan made a payment of €482.98 per month.
38. In the course of the hearing, counsel for AIB drew attention to the fact that, under the proposed arrangement, Ms. Phelan, in addition to making payments of €443 per month in respect of the mortgage, will also have to pay a monthly contribution of €200, for the first five years of the arrangement (with an even larger contribution in year six of €656 per month) and in addition, she will have to continue making a payment of €227 per month in respect of the hire purchase arrangement in respect of the VW Polo. AIB has a number of complaints in relation to the hire purchase arrangement but, in the context of the issue which I am now addressing, the only relevance of the hire purchase arrangement is that €227 will require to be paid to the hire purchase company at the same time as Ms. Phelan will be required under the proposed arrangement, to pay a total of €643 per month (being the aggregate of the mortgage payment of €443.00 and the monthly contribution of €200). While, by my calculations, Ms. Phelan is currently paying €482.98 per month to AIB (which is slightly more than the mortgage payment of €443.00 required under the proposed arrangement) along with €227 per month to the hire purchase company, counsel for AIB makes the point that she will have an additional €200 to pay per month for the first five years of the arrangement and €656 per month for the final year of the arrangement.
39. In response, counsel for the practitioner argued that this concern is only in respect of the period up to 2020 when the hire purchase arrangement will be paid off. He argued that this is such a short period that neither the court nor AIB should have any concern that, for the duration of that period, Ms. Phelan will have to live below the level recommended by the ISI in its reasonable living expenses guidelines. As in the case of Mr. and Ms. Hurley, counsel for the practitioner argued that the alternative for Ms. Phelan was that she would lose her home. He drew attention, in this context, that the average rent for a similar property in the area where Ms. Phelan lives is €1,000 per month. Rent of that scale is clearly not affordable by Ms. Phelan on the basis of her total household income.
40. Counsel for the practitioner also stressed that Ms. Phelan had the support of her two eldest children (who are now adults) who reside in the family home and contribute on a weekly basis to the household expenses. While the amount currently paid per month is no more than €217.00 (which is already taken into account, in the context of the proposed arrangement, insofar as Ms. Phelan’s total net income is concerned) there must be some scope for that figure to be increased in the event that, for any reason, Ms. Phelan encounters difficulty from time to time during the currency of the arrangement in funding the living expenses for herself and her dependant child. Insofar as the more significant monthly payment in year six of the proposed arrangement is concerned, counsel for the practitioner suggested that this does not create a problem in circumstances where, by that stage, Ms. Phelan will no longer have any dependant children. In accordance with the ISI guidelines, the reasonable living expenses will fall from €1,506.00 per month to €1,050.00 per month. The additional monthly contribution of €656.00 in the final year will, therefore, be affordable. In fact, as a consequence of the elapse of time since the PIA was originally proposed at the end of 2016, the youngest child (who was then 14) will reach the age of 18 in 2020 and, therefore, the reasonable living expenses will reduce to €1,050 at that time.
41. Given that Ms. Phelan is currently making payments at €482.98 to AIB together with €227 per month to the hire purchase company, this demonstrates that Ms. Phelan is in a position to live on that basis in 2020 and following years. Appendix 4 to the proposed arrangement shows that payments of that level will not require Ms. Phelan to live at a level below the ISI guidelines. The same applies in the final year of the arrangement even though the monthly contribution (leaving aside the mortgage payment of €443.00) will increase to €656.00. Appendix 4 shows that even in that year she will be able to live within the guidelines.
42. The potential difficulty is in respect of the period between now and 2020, when the reasonable living expenses (measured by reference to the ISI guidelines) will be of the order of €1,506.00 while at the same time Ms. Phelan will have the obligation to pay €443 per month to AIB, a further sum of €200 by way of monthly contribution under the arrangement and, in addition, €227 in respect of the hire purchase payments. By making all three of these payments during that period, Ms. Phelan’s disposable income (in order to fund her living expenses) will be €1,279 per month which is less than the ISI guide figure of €1,506.00, for a household comprising one adult and one dependant child and a motor vehicle. However, this must be viewed by reference to Ms. Phelan’s individual circumstances. She has said, on affidavit, that she is prepared, during this period, to live below the level of the ISI guidelines in order to keep her motor vehicle which is essential to enable her to get to and from her place of work and to bring her child to and from school and to extracurricular activities. That is a very important individual circumstance to which, to my mind, appropriate consideration must be given.
43. Furthermore, in my view, the period in question is sufficiently short to enable someone in Ms. Phelan’s position to weather whatever hardship may arise for her during that relatively brief period. On any view, the hardship sustained by Ms. Phelan during that relatively brief period will be significantly less than the very severe hardship that would ensue for her and her family if the application under s. 115A were to be rejected and she was to lose her family home. In addition, it is inconceivable that her adult children (who currently reside in the home with her) would not be prepared to contribute more to the living costs of the household during this period if that became necessary. While no such commitment is recorded in the papers before the court, I believe that it is very probable that the adult children would do so in the event that the household were to suffer some level of hardship during the brief period described above.
44. As noted above, what must be considered in the context of s. 99(2)(e) is the income that will be sufficient to maintain a reasonable standard of living for Ms. Phelan and her dependant child. While I must (and I do) have regard to ISI guidelines, (in accordance with s.99(4) of the 2012 Act), the key consideration is what is a reasonable standard of living for Ms. Phelan and her child. That is what s.99(2)(e) requires. It is true that, for a period, Ms. Phelan’s disposable income will dip below the guide figure set by the ISI. However, in her case, this is purely as a consequence of her need to maintain hire purchase payments for her motor vehicle so that she can get to her place of work and get her child to school. In my view, it is perfectly reasonable, in the particular circumstances of Ms. Phelan, for her to make that choice. On the evidence before the court, she needs her motor vehicle in order to maintain her job. Without her job, she would not have a sufficient income to meet her living expenses. In her particular circumstances, it is an entirely rational decision to make to live slightly beneath the guideline figures assessed by the ISI for this relatively short period of time up to 2020.
45. I was, however, troubled by one aspect of the evidence in relation to the hire purchase arrangement. The hire purchase agreement was not exhibited at any stage in the course of the exchange of affidavits in the Circuit Court. In addition, in an email exhibited by Ms. Phelan, her practitioner wrote to AIB on 26th October, 2016, stating that the VW Polo: “currently has a finance balance of €12,673…”. In the course of the hearing, counsel for AIB drew attention to this email and suggested that it was difficult to understand how it could be said that the hire purchase payments would cease in 2020, if the balance due as of October 2016, was as much as €12,673.00 and the monthly payments made by Ms. Phelan are no more than €227 per month. Furthermore, in circumstances where the hire purchase agreement has not been exhibited, there is no information in the papers before me as to whether any balancing payment or option payment has to be made at the end of the term of the hire purchase agreement in order to secure ownership of the car. In my view, these are matters that should properly have been addressed by Ms. Phelan on affidavit. Nonetheless, having reflected further on the matter since the hearing, I do not believe that this should affect the outcome of the appeal (insofar as this issue is concerned). I have come to that conclusion in circumstances where, in the course of the Circuit Court proceedings, two affidavits were sworn on behalf of AIB and no issue was raised in those affidavits about any final payment to be made under the hire purchase agreement or as to whether it would, in fact, be paid off by 2020. Most bankers would be aware that it is a common feature of a hire purchase arrangement that there is a final payment to be made at the end of the term in order to secure ownership of the hired vehicle. In circumstances where these points were not ventilated by AIB, I believe it would be unfair, in the circumstances, for me to look behind the evidence that the payments of €227 under the hire purchase agreement will come to an end in 2020. In taking that approach, I am conscious that the onus of proof in applications of this kind rests on the practitioner. However, in circumstances where AIB has had the email in question since October 2016, and in circumstances where Appendix 2 to the proposed arrangement made clear that the hire purchase agreement would be paid off by 2020 and where neither of the affidavits thereafter sworn on behalf of AIB raised this point, it would be fundamentally unfair to Ms. Phelan to call into question at this appeal stage, the evidence before the court that the hire purchase agreement will be paid off by 2020. The evidence to that effect is set out in para. 41 of Ms. Phelan’s affidavit sworn in the course of the Circuit Court proceedings on 11th July, 2018. In fairness to her, if this point was to be pursued, it should have been ventilated in the course of the Circuit Court proceedings so that Ms. Phelan would have had an opportunity (at the time she placed her evidence before the Court) to deal with the matter.
46. For completeness, I should make clear that, based on the figures in the email of 26 October, 2016, it is unlikely that the hire purchase arrangement would endure for very much longer beyond 2020. I should also make clear that, even if it were the case that the hire purchase arrangement was to continue for somewhat longer than 2020, I would still be of opinion that the additional payment of €227 per month will not have the effect of reducing Ms. Phelan’s standard of living to less than what is reasonable for her and her child. The basic point is that the period in question is short and the motor vehicle is required in order to ensure that Ms. Phelan can continue working. In Ms. Phelan’s particular circumstances, a vehicle is a necessity of life. It is also necessary for her child so that the child can attend not only school but also the extracurricular activities which are so important in any child’s development. It is, therefore, understandable that, in the particular circumstances of Ms. Phelan and her child, a choice would be made to prioritise the payments in respect of the car over some of the other items listed in the ISI guidelines such as social inclusion and participation, public transport and household goods. Moreover, any such sacrifices are likely to be short lived in that, based on the figures in the October 2016 email, the hire purchase payments will come to an end relatively soon even if not in the calendar year 2020.
47. I am accordingly of opinion that there is a sufficient basis in this case to form the view that the payments to be made under the arrangement will not have the effect of reducing the standard of living of Ms. Phelan and her dependant child to an unreasonably low level. In circumstances where the reduction in standard of living will be temporary only, where the car is necessary to enable Ms Phelan to hold down her job and allow her to bring her child to school and to very important extra-curricular activities, and where it will secure a home for the family for the future, I have come to the conclusion that the requirements of s. 99(2)(e) are satisfied in this case.
Sustainability
48. The next issue which arises in these appeals is whether the court can be satisfied that (as required by s. 115A(9)(c) of the 2012 Act), the debtors are reasonably likely to comply with the terms of the proposed arrangements. Both Bank of Ireland and AIB suggest that, on the evidence, the arrangements are simply not sustainable and that the debtors will not be in a position to comply with the terms of the arrangements. For the purposes of the consideration of this issue, it is important to bear in mind that the test laid down by s. 115A(9)(c) is one of reasonable likelihood not certainty. There must, accordingly, be sufficient evidence available to the court to satisfy the court that it is reasonably likely that the debtors will be able to meet their respective obligations under the proposed arrangements.
49. In each of the appeals, the argument is essentially the same. In each case, the objecting creditor contends that, in light of the fact that the debtors will be required to live at a level below the ISI guidelines on reasonable living expenses, it is unlikely that they will be in a position to meet their obligations, under the proposed arrangements, in respect of mortgage repayments. The argument made is that, if it comes to a choice between making a mortgage repayment and discharging a reasonable living expense, debtors will, almost inevitably, prioritise the living expense over the mortgage repayment.
50. In both cases, the objecting creditors have argued that, in considering sustainability, the court should not confine itself to considering the position of the debtors during the course of the proposed arrangements. They submitted that it is also necessary to consider the circumstances of the debtors into the future. In my view, the objecting creditors are correct in this submission. Section 115A(9)(b)(i) requires the court to be satisfied that the proposed arrangements will enable the debtors to resolve their indebtedness without recourse to bankruptcy. There would be no point in approving an arrangement if there was a reason to conclude that the debtors were likely to be unable to meet their financial commitments (including their mortgage repayments) in the future. Were that to happen, they might find that bankruptcy was the only solution. In Jacqueline Hayes [2017] IEHC 657 Baker J. explained the position as follows at paras. 21-22:-
“21. The purpose of the legislation is to facilitate the return to solvency of a debtor, and to do so in a reasonable way, so that the new-found solvency is itself sustainable. It is in that context that the legislation has permitted the writing down of secured and unsecured debt, so that at the end of the six-year period of a PIA the debtors will have a reduced debt liability, which it is hoped will be sustainable by them, having regard to known circumstances.
22. The legislation does not expressly require the court to examine the likely circumstances of a debtor after the six-year term of a proposed PIA, but in my view the creditor is correct that a court may not, if it has the evidence before it, disregard the likely or reasonably likely circumstances that will exist at the end of the six-year period of the PIA, or of the reasonably foreseeable future thereafter. There is likely to be a spectrum of circumstances and the degree of certainty regarding future financial circumstances will usually diminish over the middle to long term.”
51. The objecting creditors also make the argument that the reasonable living expenses measured by the ISI are pitched at a level which is too low for debtors to live on for any extended period of time and that it is essential that the proposed arrangements provide for contingencies. In the submissions made on behalf of the Bank of Ireland, significant reliance was placed on p. 21 of the ISI Background Document where the ISI emphasises the need to make provision for savings and contingencies in the following terms:-
“In the alternative any relatively small but unforeseen event might well cause the failure of an insolvency arrangement since a person in an insolvency arrangement will likely have only limited access to credit. This savings allowance may also assist in preventing people on low incomes being cut off from sources of regulated credit.”
52. Both of the objecting creditors also rely on a number of observations made by me in my judgment in Lisa Parkin [2019] IEHC 56 at paras. 42 and 59. In para. 42 of that judgment, I said:-
“42. …it is important to bear in mind that, between now and the end of the mortgage term, Ms Parkin will continue to have to incur the ordinary expenses of life. For example, money will inevitably be required from time to time for expenses such as medical and dental treatment and for the upkeep and maintenance of the family home; and relatively large sums may need to be spent when the roof springs a leak or the windows need to be replaced or the central heating irretrievably breaks down.”
53. In para. 59 of the same judgment, I said:-
“The Guidelines issued by the ISI envisage that the reasonable living expenses of a single adult with a car will be €1,050.48 per month. That might appear to leave Ms Parkin with a very generous cushion even after her reasonable living expenses are taken into account. However, it must be borne in mind that those guidelines are intended to be applied for the duration of a bankruptcy, a PIA, or a debt settlement arrangement. They are not intended to be a measure of the expenses likely to be incurred over the course of a longer period and they are certainly not designed to apply for a lifetime. For example, they envisage an exceptionally modest sum of €0.97 per month for personal costs and an extremely modest sum of €31.34 per month for health. They are also based on very modest provision for contingencies and savings of no more than €43.38 per month. That figure for contingencies seems to me to be manifestly insufficient on a long term basis to deal with the costs every home owner incurs on a recurring basis in the upkeep and maintenance of property (even leaving aside the emergencies that occasionally arise requiring more substantial outlay such as roof repairs).”
54. In addition, AIB has drawn attention to the observations of Baker J. in Clive Casey (Unreported, High Court, 29th May, 2017), where she said at para. 29:-
“I also accept the argument of the debtor that it is not the intention of the Act that a debtor be confined to the basic reasonable living expenses set out by the [ISI] for the rest of his or her life, and that the general scheme of the Act is that a debtor will in the currency of a PIA bring into account to the maximum extent possible his or her assets and income, and that on the performance of the obligations in the PIA the debtor will be relieved of identified debt. Such an approach to post-arrangement debt is familiar in the scheme of the bankruptcy legislation.”
55. It should also be noted that similar observations were made by Baker J. in a number of other decisions given by her in applications under section 115A. However, it is crucial to note that the observations of Baker J. in Clive Casey and my own observations in Lisa Parkin , were all concerned with the long term position of the debtors. The observations were not intended to capture the position of debtors during the currency of a personal insolvency arrangement. Moreover, the observations were directed at circumstances where objecting creditors had sought to argue that the debtors could afford more by way of payments to them in the future than was envisaged under the terms of the relevant arrangements under consideration. Thus, for example, in Lisa Parkin the objecting creditor had argued that, in the post personal insolvency arrangement period, Ms. Parkin had means significantly in excess of those required to discharge the ISI reasonable living expenses such that she could afford to pay much more to the objecting creditor in that case. What I sought to do in that judgment, consistent with my understanding of the approach taken previously by Baker J., was to draw attention to the fact that the ISI reasonable living expenses are only intended to apply during the time limited extent of a bankruptcy or a personal insolvency arrangement. As Baker J. made clear in Clive Casey , it is not the intention of the Acts that a debtor should be confined to the basic reasonable living expenses for the rest of his or her life.
56. It is also important to record that this does not mean that a personal insolvency arrangement is unsustainable where, on the evidence before the Court, the future income of a debtor (after payment of the mortgage instalments) is only marginally above the level of the reasonable living expenses measured by the ISI. There is nothing in the judgments previously given by the Court to support that proposition. In every case, the individual circumstances of the debtor have to be considered and there are likely to be many cases where a debtor is prepared to live frugally for many years into the future in order to keep his or her family home. There is no presumption that a debtor with a modest income above the level of the ISI reasonable living expenses is likely to default. Everything will depend on the personal circumstances of an individual debtor.
57. For completeness, I should also say that, as I hope I made clear in Lisa Parkin , there were particular reasons in that case why I thought it would be procedurally unfair to Ms Parkin to uphold the objection of the creditor in relation to the relatively generous financial buffer available to Ms Parkin after discharge of her mortgage payments. I did not intend to suggest that a buffer of that scale was either required or justified in every case. Nor did I suggest in that judgment that the scale of the buffer was to become a template for the future. Every case must be assessed by reference to its own particular facts and circumstances.
58. In the case of Mr. & Ms. Hurley, they have shown by their ability to maintain payments at the rate of €930 per month (even while living beneath the level of the reasonable living expenses set out in the ISI Guidelines) that they have the capacity to make significant payments on foot of the mortgage over a prolonged period. Their payment history since July 2016 demonstrates that they will be well capable of continuing to make payments in the future in accordance with the proposed arrangements and the written down mortgage loans. In essence, the complaint made by the Bank of Ireland is that there will be an insufficient margin available to them in the future over and above the level of the reasonable guidelines set by the ISI, to have any confidence that they will be able to continue to make payments in the event that, for example, significant house repairs are required or some other contingency arises which places them in a difficult position. One can never rule out the possibility that difficulties might arise in the future. That is not peculiar to personal insolvency arrangements. The same can be said for many a performing mortgage. Furthermore, Baker J., in a number of cases, has stressed that a court cannot make assumptions regarding the likely financial or other circumstances of a debtor far into the future. (See for example Paula Callaghan [2017] IEHC 332 at para. 79; see also Jacqueline Hayes [2017] IEHC 657 at paras. 22 & 29).
59. It would obviously be ideal if there was a greater financial cushion available to Mr. Hurley and Ms. Hurley into the future so as to minimise the impact of any financial shocks that may emerge. However, on the basis of the household income available to them, that extra financial cushion could only be achieved at the expense of Bank of Ireland. The practitioner, in this case, in formulating the proposed arrangements, has had to navigate a course between the interests of Bank of Ireland as a secured creditor and the affordability of any proposal for Mr. Hurley and Ms. Hurley. Obviously, if the practitioner had proposed that the loan in favour of Bank of Ireland should be written down to the current value of the family home, that would have left Mr and Ms Hurley with a greater disposable income in order to discharge their reasonable living expenses. Conversely, it would have reduced the amount to be paid to Bank of Ireland and may well have prompted a complaint from Bank of Ireland that, contrary to the requirements of s. 115A(9)(b) (ii) of the 2012 Act (as amended) Mr. Hurley and Ms. Hurley could afford more by way of mortgage payments. In such circumstances, as is so often the case, the bank might well have challenged the proposal to write down the mortgage loan to that extent. Practitioners often find themselves in a difficult position trying to balance the interests of the secured creditor on the one hand and the interests of the relevant debtor on the other. In this case, the practitioner has made a judgment that Mr. and Ms. Hurley can afford to pay more by way of a mortgage such that it is not appropriate to write down the secured debt to the current value of the family home. It is ironic that the decision to proceed in this way has now led to the attack on the sustainability of the proposed arrangement.
60. What is affordable to Mr. & Ms. Hurley is dependent on their means. In my view, their past performance since July, 2016 demonstrates that they will be in a position to continue to honour their obligations under the proposed arrangement into the future. Any financial shocks which may arise in the future cannot be predicted. What can be said is that Mr. Hurley and Ms. Hurley have shown themselves to have been very resourceful in managing their finances to date. Furthermore, as their children grow up and become adults and begin to earn a living for themselves, Mr. Hurley and Ms. Hurley will have more disposable income available to them to withstand any financial shocks that may possibly occur in the future. In these circumstances, I do not believe that there is any basis to form the view that Mr. Hurley and Ms. Hurley are not reasonably likely to be able to comply with the terms of the proposed arrangement. On the contrary, the evidence (and in particular their behaviour to date) demonstrates that they are reasonably likely to do so.
61. There was one further issue ventilated by Bank of Ireland in this context. It was argued that the eldest child in the family must be an additional drain on their resources in circumstances where the only funding available for the further education of that child is under the Student Universal Support Ireland (” S.U.S.I .”) scheme. The bank drew attention to exhibit TH3 to Mr. Hurley’s affidavit which recorded that, although the grant available in respect of the eldest child of the family provides for full payment of tuition fees in UCD, there is a modest maintenance grant of no more than €1,215.00 per year which is paid in the sum of €135.00 per month for nine months of the year. In circumstances where the student in question has to travel from the south of the country to attend UCD, it is suggested that the sum of €135.00 would not cover the entirety of his living costs and accommodation each month in Dublin. The argument made on behalf of the Bank of Ireland was that, in the circumstances, the S.U.S.I. funding was plainly insufficient to maintain a student away from home and that, as a consequence, this must necessarily increase the pressure on Mr. Hurley and Ms. Hurley in trying to budget not only for the payments to be made under the proposed arrangements but also for the demands of their children including any child in third level education. In my view, on the evidence before the court, there is no substance to that contention. The fact is that, on the basis of the income available to Mr. Hurley and Ms. Hurley, they have been able to manage their finances notwithstanding the inevitable costs that arise for a student in third level education. Moreover, it is a feature of third level education in this country that many students support themselves by part-time work and by work during the summer months.
62. Thus, the fact that the eldest child of the family is now in third level education is not a factor which would cause me to have a concern that the interlocking arrangements proposed by the practitioner on behalf of Mr. Hurley and Ms. Hurley are unsustainable. I remain of the view expressed in para. 58 above that the evidence demonstrates that, contrary to the contention advanced by Bank of Ireland, the proposed arrangements are sustainable. I am therefore satisfied that the requirements of s. 115A (9)(c) are satisfied in their case.
63. In the case of Ms. Phelan, the evidence in relation to sustainability is not as strong or as detailed as it is in the case of Mr. Hurley and Ms. Hurley. However, for the reasons outlined in paras. 41-47 above, I am satisfied that Ms. Phelan will be in a position to sustain the fee payments required under the arrangement for its duration. As previously noted, Ms. Phelan will have to live below the level recommended by the ISI in its reasonable living expenses guidelines for a relatively brief period during the currency of the proposed arrangement. Moreover, Ms. Phelan has the support of two adult children who currently reside in the home with her and make a contribution to the living costs of the household. While the evidence in relation to the arrangement with Ms. Phelan’s adult children has been criticised (with some justification), there is no reason to suppose that Ms. Phelan’s adult children will not be prepared to support her. Were either of them to leave the family home, it would be open to Ms. Phelan to take in a lodger. In several appeals which have come before me, objecting creditors have complained about what they perceive as failures on the part of debtors to let out rooms in their homes in order to be in a position to make more extensive payments to their creditors under personal insolvency arrangements.
64. It is true that, in the final year of the proposed arrangement, Ms. Phelan will be required to make more extensive monthly contributions to the arrangement namely €656. However, by that time her motor vehicle will no longer be on hire purchase. Moreover, her daughter will no longer be a minor. In those circumstances, as noted above, her reasonable living expenses (measured in accordance with the ISI guidelines) will reduce to €1,050. Given that her current monthly income is €2,149.00, she would accordingly have sufficient assets available to pay that contribution along with the monthly payment to AIB namely €443.
65. Insofar as the post arrangement period is concerned, based on Ms. Phelan’s current net monthly income of €2,149.00 and the reasonable living expenses of a single person with a motor vehicle of €1,050, Ms. Phelan will have a cushion of €1,099 from which to pay the mortgage repayments to AIB and to deal with any contingencies that may arise in the future. Based on the current level of the mortgage repayments, she should have more than €600 per month available in the future to provide for such contingency. In my view, this demonstrates that the proposed arrangement in Ms. Phelan’s case is sustainable. I am therefore satisfied, in her case, that the requirements of s. 115A (9)(c) are satisfied.
Other issues
66. Both Bank of Ireland and AIB have raised a number of other issues in relation to each of the arrangements and it is to those issues that I now turn.
The Insolvency Regulation
67. During the course of the hearing, counsel for Bank of Ireland raised an issue in relation to the enforceability of the arrangement insofar as BNP is concerned. As explained in para. 4 above, Mr. Hurley and Ms. Hurley had invested in a holiday property in France which is the subject of security held by BNP on foot of a secured loan. Under the proposed arrangement, the property will be surrendered to BNP. In circumstances where BNP has not proved its debt, no dividend will be paid to it. Counsel for Bank of Ireland raised the spectre that, since BNP is a bank organised and existing under the laws of France, there was no certainty that BNP would be bound by the arrangement. Counsel submitted that the court would need to be satisfied that, under the Recast Insolvency Regulation (Regulation (EU) 2015/848) (” the Insolvency Regulation “), BNP would be bound by the terms of the arrangement such that it could not, at some time in the future, demand payment of any amount due to it and thereby undermine the arrangement reached in Ireland with the creditors of Mr. and Ms. Hurley. That was, however, the extent of the submission that was made. No provisions of the Insolvency Regulation were drawn to my attention. It was simply put to me that this is something about which the court needed to be satisfied.
68. I acknowledge fully that the court would need to be satisfied in relation to an issue of this kind. Nonetheless, where such an issue arises, it would be helpful for counsel to take the court through the relevant provisions of the Regulation so as to assist the court in forming a view on this issue.
69. I confirm that I have considered the terms of the Insolvency Regulation and, having done so, I am satisfied, that BNP will be bound by the arrangement, if it is approved by the court under s. 115A. For this purpose, I draw attention to the following: –
(a) In the first place, Recital 66 makes clear that it is the law of the Member State where proceedings are opened (i.e. the lex concursus ) that will apply save where the Regulation prescribes othewise. Recital 66 says: ” the lex concursus determines all the effects of the Insolvency proceedings, both procedural and substantive, on the persons and legal relations concerns. It governs all the conditions for the opening, conduct and closure of the Insolvency proceedings” (emphasis added). The present proceedings are insolvency proceedings which have been opened in Ireland. Thus, Irish law will govern the closure of the proceedings and will govern the terms and effect of the proposed arrangement.
(b) Recital 68 provides that rights in rem should normally be determined according to the lex situs and this should not be affected by the opening of Insolvency proceedings. Clearly, the intention of the Regulation is that a secured creditor will therefore be entitled to enforce rights against secured property in the jurisdiction in which the security is situated. This is reinforced by the provisions of Article 8. Thus, in the present case, BNP would be entitled to exercise all rights of French law over the asset of Mr. and Ms. Hurley in France. It is therefore perfectly understandable that the arrangement envisages that the asset in question should effectively be returned to BNP. That aspect of the arrangement therefore does not offend against the Insolvency Regulation.
(c) Accordingly, the concern of the court in the present application is in relation to that aspect of the arrangement which envisages that BNP will not be entitled to any dividend in respect of any amount still due to it after realisation of the asset in France. In my view, that issue (consistent with what is said in Recital 66 quoted above) is dealt with in Article 32 of the Regulation which makes clear that a judgment handed down by a court concerning the closure of insolvency proceedings or concerning compositions approved by the court shall be recognised throughout the EU with no further formalities. Such a judgment will be enforceable in accordance with the Brussels Recast Regulation. It is clear, therefore, that an order made under s. 115A of the 2012 Act (as amended) constitutes such a judgment. The order will accordingly be entitled to recognition in France. In these circumstances, I am of opinion that BNP will be bound by any order I make under s. 115A confirming the coming into effect of the proposed arrangements under which no dividend will be paid to BNP. They will not thereafter be entitled to upset the apple cart and treat the unsecured element of the BNP debt as still due.
Have the requirements of s. 115A(9)(g) been complied with?
70. In the course of her submissions to the court, counsel for Bank of Ireland also raised an issue as to whether the requirements of s. 115A(9)(g) had been complied with insofar as Mr. Hurley is concerned. Under that subsection, it is necessary, save in cases to which s. 111A applies, to establish that at least one class of creditors has accepted the proposed arrangement by a majority of over 50%. For this purpose, s. 115A(17) permits the court to consider a single creditor to constitute a class.
71. No issue arises in relation to s.115A(9)(g) insofar as Ms. Hurley is concerned. She had only one creditor namely the Bank of Ireland. In those circumstances, she is entitled to rely on s.111A for the purposes of mounting her application for approval of the arrangement. However, in Mr. Hurley’s case, two creditors participated in the meeting namely Bank of Ireland and AIB. Bank of Ireland is owed a total of €573,035.66 which represents 93.6% of Mr. Hurley’s overall indebtedness. AIB is owed €39,024.64 which represents 6.4% of the overall indebtedness. AIB voted in favour of the proposal. For the purposes of the application under s. 115A, the practitioner characterised AIB as a separate class of creditors. In particular, he characterised them as the “regular unsecured class of creditor”. In the course of the appeal hearing, counsel for the Bank of Ireland queried why Bank of Ireland was not included in that class also given that it is being treated, in part, as an unsecured creditor. Counsel emphasised that the burden is on the practitioner to satisfy the court in relation to this issue.
72. While I entirely agree that the burden lies on the practitioner to satisfy the court in relation to the compliance of all of the conditions set out in s.115A, I am nonetheless surprised that this issue should be ventilated on behalf of Bank of Ireland in this case. It is an issue which was addressed in Lisa Parkin (on which Bank of Ireland relied in relation to its argument with regard to reasonable living expenses). The issue is addressed by me in paras. 25-33 of my judgment in Lisa Parkin and it is therefore unnecessary to repeat the same analysis here. However, it seems to me that what I said in para. 30 of that judgment is equally applicable ( mutatis mutandis ) here:-
“In my view, the approach taken by the learned Circuit Court Judge was entirely correct. There were only two creditors who participated in the meeting – namely the credit union and PTSB. The credit union was solely an unsecured creditor. However, PTSB was both an unsecured creditor (in respect of the credit card and loan accounts) and a secured creditor in respect of the mortgage account. The fact that PTSB held a mortgage over the family home in respect of the bulk of the debt due to it shows very clearly that its rights were markedly different to those of the credit union. Because such a significant element of the debts due to PTSB were secured by the mortgage, PTSB’s interest was in securing an outcome that best preserved its rights under the mortgage. In contrast, the credit union was solely concerned as an unsecured creditor. Its interests were in securing an outcome which maximised the return to unsecured creditors. In these circumstances, it seems to me that the rights and interests of PTSB and the credit union were so dissimilar as to make it impossible for them to consult together with a view to their common interest. In short, they had no common interest.”
73. It seems to me that similar considerations apply here. AIB was purely an unsecured creditor. Bank of Ireland was both a secured creditor and a creditor in respect of an unsecured element of its debt (particularly in circumstances where the market value of its security was significantly less than the extent of the debt). It follows that the rights and interests of AIB on the one hand (as an unsecured creditor) and Bank of Ireland (being both a secured and unsecured creditor) on the other, were so dissimilar as to make it impossible for them to consult together with a view to their common interest. They therefore formed separate classes.
74. I have not lost sight of the fact that, under s. 115A(17)(b) the court must have regard to the number and composition of the creditors who voted and the proportion of the debts due to those creditors. In my view, it could not be said that the debt owed to AIB was so insignificant as to make it disproportionate to regard it as a separate class of creditor. In these circumstances, I am satisfied that the requirements of s. 115A(9)(g) have been satisfied insofar as Mr. Hurley is concerned.
The concerns of AIB in relation to the hire purchase agreement put in place by Ms. Phelan
75. In its notice of objection under s. 115A(3), the complaint made by AIB in relation to the hire purchase arrangement was put in the following terms:-
“The … Arrangement is unfair and inequitable to the Creditor contrary to s.115A(9)(e)…in circumstances where the Debtor seeks to retain a high value vehicle the subject of a hire purchase arrangement, acquired at a time when she was making no repayments whatsoever to the Creditor and where the retention of this asset will force the Creditor to live beyond her Reasonable Living Expenses as prescribed by [the ISI] and where the Debtor has displayed no capacity to do so”.
76. However, in the affidavit of Matt Grimes sworn on 26th January, 2017 in support of the objection, AIB went somewhat further. In para. 23 he said (insofar as relevant):-
“…the Bank … within two years prior to the issue of the protective certificate…[sought] to recover the debts due by the Debtor and it did enter into a number of short term solutions with the Debtor including mortgage moratoriums to assist the Debtor …. Of acute concern to the Banks is the fact that during 2015 when the Debtor enjoyed mortgage moratoriums from the Bank she acquired a new and valuable motor vehicle taking out significant debt. The Debtor has … made monthly repayments on the motor vehicle to her hire purchase provider in the sum of €227.00. There appears to be no arrears on that … agreement. This transaction must be viewed at a time when in 2015, whilst having a moratorium for six months, the debtor did not contribute towards her home loan at all and whilst having a three month moratorium in 2016 a total of only €995.00 was paid by her towards her home loan. The motives of the Debtor in this regard are difficult to understand however it is quite clear that she preferred her hire purchase creditor above the Banks in terms of payments made by her since 2015….”
77. In a subsequent affidavit sworn by Mr. Grimes on 31st March, 2017 he explained that AIB would have no issue with Ms. Phelan owning, retaining and running a car. However, Mr. Grimes made the point that a less valuable car would place less financial strain on Ms. Phelan’s ” already constrained income “. Mr. Grimes indicated that AIB does not in general raise an objection to the retention by an insolvent debtor of a motor vehicle valued under €5,000. Mr. Grimes also reiterated the significant concern of AIB about the manner in which the motor vehicle was acquired at a time when AIB had agreed a moratorium on repayments of the mortgage debt in order to give some breathing space to Ms. Phelan. Mr. Grimes suggested that the manner in which the car had been acquired behind AIB’s back called into question Ms. Phelan’s bona fides .
78. In the course of the hearing of the appeal on 13th May, 2019, counsel for AIB re-emphasised the concern of AIB at the manner in which the motor car was acquired by Ms. Phelan. I can well understand why AIB would be concerned about this issue. The issue is relevant in at least two respects:-
(a) In the first place, the court is required under s.115A(10)(a), when considering whether to make an order under s.115A(9), to have regard to the conduct of the debtor within two years prior to the issue of the protective certificate. In this case, the motor vehicle was acquired by Ms. Phelan within that two-year period;
(b) Secondly, although no case was made by AIB in its notice of objection that the payments made to the hire purchase company constituted a ” preference ” within the meaning of s.120(h), I am required as part of my obligations under s.115A(8) to consider whether, having regard to the information before the court, any of the grounds specified in s.120 might be said to apply to Ms. Phelan or to the proposed arrangement in her case. In light of the information provided by Mr. Grimes in his affidavits, it seems to me that I must therefore consider whether the hire purchase arrangement (and the payments made under it) could be said to constitute a “preference” within the meaning of s.120(h).
79. Insofar as the first of those issues is concerned, I am of opinion that Ms. Phelan should have informed AIB of her intention to acquire the motor vehicle during the moratorium agreed with AIB. In circumstances where AIB was agreeing a moratorium on repayments of the mortgage, it clearly behoved Ms. Phelan to disclose to AIB her intention to acquire a motor vehicle by hire purchase. The question which now arises is whether this conduct on the part of Ms. Phelan (which arose during the relevant two year period specified in s.115A(10)) is sufficient to persuade me that it would not be appropriate to allow the appeal and make an order confirming the coming into effect of the proposed arrangement.
80. A somewhat similar issue arose in J.D . [2017] IEHC 119. In that case, the debtor had acquired a motor vehicle on hire purchase terms at a time when she understood from advice given to her by an insolvency advisor (who was subsequently discovered to be acting without accreditation) that proposals put to a secured creditor had been accepted. On the evidence before her, Baker J. came to the conclusion that the behaviour of the debtor was not reckless. At para. 78 she said:-
“78….I consider that the evidence does not point to any financially reckless behaviour on the part of the debtor ….in May, 2015 the debtor contracted to purchase a second-hand motor vehicle for the sum of €17,000 with the hire purchase repayment obligation of €315 per month, which will end in year 5 of the PIA. Her uncontroverted evidence is that she needed a reliable car for the purposes of her employment, and that she entered into the hire purchase agreement at a time when she believed that while EBS had made demand on foot of the mortgage, that an agreement had been made through [the unaccredited insolvency advisor] to resolve the difficulties with the mortgage. …”
81. In para. 79 of her judgment in that case, Baker J. accepted that the debtor rationally approached her finances in the circumstances as she understood them albeit that she had been led astray by her engagement with an unregulated entity. In those circumstances, the debtor’s conduct was excusable. In contrast, in the present case, Ms. Phelan has not put forward any evidence that would explain why she did not discuss her proposed acquisition of a motor vehicle with AIB prior to entering into the hire purchase agreement. Accordingly, the evidence in this case is not on all fours with the evidence available to Baker J. in J.D. Nevertheless, there is a very clear explanation given by Ms. Phelan as to why it was necessary to acquire the motor vehicle. The evidence in relation to the acquisition of the vehicle has already been set out in para. 45 above. As I sought to make clear in para. 46 above I am of opinion that a motor vehicle is a necessity of life for Ms. Phelan, having regard to her need to get to and from work and to bring her child to and from school. It should also be noted that, as Ms. Phelan explains in para. 39 of her affidavit, she did not have the funds to purchase outright a roadworthy motor vehicle. She therefore had no alternative but to go for the more expensive option of a hire purchase arrangement which, from her perspective, had the significant advantage that she did not have to make any significant upfront payment but instead could make the hire purchase payments monthly over several years. Thus, while I am firmly of the view that Ms. Phelan should have disclosed her intentions to AIB in advance of entering into the hire purchase agreement, I accept that it was necessary for her to acquire the vehicle in the circumstances. I also accept that there was no other realistic means of doing so available to Ms. Phelan other than by hire purchase. In addition, I accept that, as Ms. Phelan says in para. 39 of her affidavit, if she ceased to have a motor car, she would not be able to continue working. In all of the circumstances, while, in the absence of an explanation from Ms. Phelan, I cannot condone her failure to inform AIB of her intention to acquire the vehicle by hire purchase, I have come to the conclusion that it would not be appropriate to dismiss the appeal and refuse the application under s. 115A on this ground alone.
82. Insofar as s.120(h) is concerned, it provides that a creditor may challenge a proposed arrangement on the ground that:-
“The debtor had given a preference to a person within the preceding 3 years that had the effect of substantially reducing the amount available to the debtor for the payment of his or her debts (other than a debt due to the person who received the preference)”.
83. I was not addressed in any detail at the hearing in relation to this provision and in particular in relation to what is meant by a ” preference ” in this context. In the absence of full argument, it would not be appropriate for me to seek to make any definitive findings as to the ambit and effect of s.120(h). However, on the evidence before the court, I am satisfied that no issue arises under s.120(h). In the first place, there is no evidence to suggest that the making of payments to the hire purchase company has substantially reduced the amount available for the payment of Ms. Phelan’s debts. That is an essential aspect of the applicability of s 120 (h). On the contrary, on the basis of the evidence before the court, Ms. Phelan would not be in a positon to make any payments toward her debts were she not able to continue her employment. As she explains on affidavit, if she is to continue that employment, she needs to be in a position to have a motor vehicle. As she did not have the funds to buy a motor vehicle outright, she had no alternative but to proceed in the way that she did. Crucially, the fact that she has the motor vehicle allows her to maintain her employment. In turn, that will enable her to make the payments contemplated by the proposed arrangement. I therefore cannot see any basis on which it can be said that the conditions set out in s.120(h) has been met in this case.
The ” unencumbered” land adjoining Ms. Phelan’s home
84. AIB raised an issue in relation to a small strip of land to the rear of Ms. Phelan’s home that is not contained within the folio in which the principle private residence appears. This was not an issue that was ultimately debated in nay detail at the hearing. It appears to be clear that the strip of land is of no value whatever. The matter is dealt with as follows in para. 33 of Ms. Phelan’s affidavit where she said:-
“33….there is a small parcel of land that is situated to the rear of my Principal Private Residence that for reasons unknown to me are not contained within the same Folio as my capital PPR. I say and believe that this land is worthless and has no value and does not represent visible land … or in any way represents an omission from my Prescribed Financial Statement. There is no access to the piece of land and all that the land contains are water pipes and shrubbery”.
85. Although that affidavit was sworn in July 2018 and the Circuit Court hearing did not subsequently take place until November 2018, AIB did not place any further evidence before the Circuit Court to controvert what was said by Ms. Phelan (as quoted above). In the circumstances, it seems to me that this issue has been satisfactorily addressed by Ms. Phelan and does not require any further consideration from me. For completeness, I can see no basis, on the evidence before me, to suggest that there was any material omission from the Prescribed Financial Statement made by Ms. Phelan in this case.
Unfair prejudice
86. I have carefully considered all of the arguments and evidence in these three appeals. I have come to the conclusion that neither Bank of Ireland nor AIB will suffer any unfair prejudice in the event that the proposed arrangements are confirmed by the court. In each case, the objecting creditor will do better under the proposed arrangements than it would in the event of a bankruptcy. In the case of Mr. Hurley and Ms. Hurley, the Bank of Ireland will obtain a return of 64c in the euro under the proposed arrangement. In a bankruptcy, the return would be no more than 52c in the euro. While counsel for the bank has argued that the bankruptcy comparison is speculative insofar as the outcome is dependent on Mr. and Ms. Hurley being in a position to comply with their obligations going forward, I have already expressed the view that, on the basis of the evidence before the court, I am satisfied that Mr. and Ms. Hurley are reasonably likely to be able to comply with the terms of the proposed arrangement and with their ongoing obligations thereafter on foot of the mortgage. In those circumstances, it is entirely appropriate to have regard to the bankruptcy comparison which is always a very useful litmus test to be undertaken in any consideration as to whether a proposed arrangement could be said to be unfairly prejudicial.
87. Insofar as Ms. Phelan is concerned, counsel for the practitioner confirmed that the figure set out in Appendix 5 to the proposed arrangement in her case needs to be adjusted. In the course of the hearing, it was explained that the expected dividend to AIB would be no more than 53c in the euro in a bankruptcy whereas it will be 59c in the euro under the proposed arrangement. I am therefore reinforced in my view that, in the circumstances of Ms Phelan’s case, the proposed arrangement will not be unfairly prejudicial to AIB.
Conclusion
88. I confirm that in each of these appeals, I have carefully considered, in the light of the evidence and information before the court, whether each of the requirements of s.115A have been met. While this judgment has concentrated on the issues that were debated in the course of the hearing, I confirm that I have considered all of the requirements of s.115A in each case. I am satisfied that all of the conditions for the grant of relief under s.115A have been satisfied in each case. I therefore believe that it is appropriate in each case to make an order confirming the coming into effect of the proposed arrangements in accordance with their respective terms.
89. I am very conscious that I am taking a different view to that taken by the learned Circuit Court judges at first instance. I have sought to explain my reasons for doing so in this judgment. In the circumstances, I will allow the appeal in each case, set aside the orders made by the Circuit Court and, in lieu thereof, I will make an order confirming the coming into effect of the proposed arrangement in the case of each of the three appeals addressed in this judgment.