The law relating to penalty clauses in contract rarely comes before the courts, certainly not in a high profile way, therefore there was understandable excitement and anticipation of the Supreme Court decision of Cavendish Square Holding BV v Talal El Makdessi; ParkingEye Limited v Beavis [2015] UKSC 67. The case was a joined appeal, the facts of both cases being in some way concerned with penalty clauses.
In the Beavis case, Beavis had exceeded a two-hour parking limit by almost one hour and was charged a fee of £85. Beavis challenged the fee on the basis that it was either a penalty and, consequently, void or, alternatively, that the clause was in breach of the (since repealed) Unfair Terms in Consumer Contracts Regulations 1999. The facts of the El Makdessi case were a little more complex. El Makdessi agreed to sell a controlling stake in an advertising company to Cavendish. The contract of sale placed a restrictive covenant on El Makdessi preventing him from engaging in competing activities. If this was breached, El Makdessi would not be able to claim the two final payment installments and, further, El Makdessi would have to sell his remaining shares to Cavendish at a reduction. El Makdessi breached the covenant and Cavendish sought to enforce the clauses against him. El Makdessi claimed they were penalties and, therefore, not binding on him.
The Supreme Court, sitting as a panel of seven (Lords Neuberger, Mance, Clarke, Sumption, Carnwath, Toulson and Hodge), took the opportunity to review the common law on penalty clauses. While clarifying (and modernising) the law of penalties, the Supreme Court also clarified certain aspects of penalties which students and practitioners alike should welcome.
First, the Justices were careful to state that the penalties rule should remain. They had been invited, by the appellants, to remove the operation of the penalties rule in commercial cases, such as Cavendish. Secondly, the Justices stated that the penalties rule only regulates secondary obligations, not primary obligations. The secondary obligation arises from breach of a primary obligation. This is an important point which is sometimes misunderstood when considering penalties. Thirdly, the penalties rule was not limited to payments of fixed sums of money, but could, as in the Cavendish case, require transfer of assets to the non-breaching party under a contract. The Justices then turned their attention to the penalties rule.
The locus classicus on the law of penalties is Dunlop Pneumatic Tyre Co v New Garage and Motor Co (1915) where Lord Dunedin’s words should resonate with every student of English contract law:
1) Does the word ‘penalty’ appear in the contract? This is not conclusive, but a guide.
2) The essence of a penalty is a payment stipulated as punishment for breach; a liquidated damages is genuine pre-estimate of loss.
3) Construction is key – what did the parties to the contract mean? The following is the guidance:
a) Is the sum stipulated extravagant when compared with the greatest loss which could be proved? Penalty.
b) Is the breach non-payment of money, and the sum in the contract greater? Penalty.
c) If a lump is payable, irrespective of the seriousness of the breach, a presumption arises it is a penalty.
d) It is no obstacle to the sum stipulated being a liquidated damages clause that the consequences of the breach are such as to make precise pre-estimation almost an impossibility.
The court, while reminding us of these words, was careful to state that the words had become too much like a test and, rather, that the words should become guides; too much store had often been placed these words in the past. The ‘true test’, as the Supreme Court referred to it, was:
‘whether the impugned provision is a secondary obligation which imposes a detriment on the contract-breaker out of all proportion to any legitimate interest of the innocent party in the enforcement of the primary obligation. The innocent party can have no proper interest in simply punishing the defaulter.'(para 32, joint judgment of Lords Neuberger and Sumption)
The ‘legitimate interest’ element of the new test of penalties is interesting, since it immediately raises the issue of ‘what amounts to a legitimate interest?’ Obviously, the ‘legitimate interest’ will be significantly driven by the facts. In El Makdessi, the Supreme Court said that Cavendish had a ‘legitimate interest’ in the observance of the restrictive covenants given the pricing of the risk associated with the purchase [para 75], even though the clauses were interpreted to be primary obligations and, therefore, not subject to review as penalties. In the Beavis case, where the clause was a secondary obligation, the Supreme Court suggested that ParkingEye had a legitimate interest in making the £85 charge as a means of managing the car park for the retailers around the car park so that cars weren’t blocking spaces all day and, therefore, deterring shoppers [para 99]. However, does this mean that on a quiet day (and hence no pressure on parking spaces) there would be no ‘legitimate interest’?
The addition of ‘legitimate interest’, while it does make things a little more uncertain since cases will now turn on what amounts to a ‘legitimate interest’, and that will inevitably require judicial determination, it might make it more difficult to challenge a clause on the basis that it is penal.
The other matter on which the Supreme Court made a determination was in the Beavis case and whether the £85 charge infringed the UTCCR 1999. Drawing on the decision of the Court of Justice of the European Union in Aziz v Caixa d’Estalvis de Catalunya, Tarragona i Manresa (2013), which interpreted the Directive from which the UTCCR 1999 were drawn, the SC held (6-1, Lord Toulson dissenting) that the charge did not fall within the test of unfairness under regulations 5 and 6(1). Though the term was not individually negotiated, it did not cause a significant imbalance in the interests of the parties because there was no bad faith on the part of the company levying the charge. This is quite a restrictive interpretation of the provision and one with which Lord Toulson, as indicated, did not agree.
Note that though the UTCCR 1999 was repealed and replaced on 1st October 2015 by the Consumer Rights Act 2015, the decision in Beavis will continue to have some application under the new Act given the near rehearsal of the language of the Regulations in the 2015 Act and, further, because the decision of SC was based on a European judgment interpreting the Directive from which much of the pertinent law in the 2015 Act is drawn.
The joined appeals in El Makdessi and Beavis provide interesting interpretation and updating of the approach to be taken in penalties cases. By the addition of ‘legitimate interest’ into the assessment of penalties, the Supreme Court has introduced a slight element of uncertainty but, at the same time, rendered it a little more difficult to challenge such charges. Perhaps the underlying rationale is a preference for principles of freedom of contract? In cases such as El Makdessi, the courts should use powers to regulate penalties sparingly, respecting instead what the parties have agreed, unless what is agreed is so egregious that it should be checked.