austlii:cth/ARTA/2025/2904
General information, not legal advice.
ARTA
2025-09-26
Original judgment source is linked above.
MXSN and Commissioner of Taxation (Practice and procedure) [2025] ARTA 2904 (26 September 2025)
Date of written reasons: 16 December 2025 (refer note below)
Decision: The application for recusal is refused.
........................................................................
PRACTICE AND PROCEDURE - TAXATION - application for recusal - apprehended bias - application refused - observations on confidentiality orders under the Taxation Administration Act - observations on making an application to vacate a substantive hearing
Administrative Review Tribunal Act 2024 (Cth) - sections 9, 49, 50, 56, 70, 71(2), 172
Judiciary Act 1903 (Cth) - section 39B
AZC20 v Secretary, Department of Home Affairs [2023] FCA 1252
Doggett v Commonwealth Bank of Australia [2019] FCAFC 19
Ebner v Official Trustee in Bankruptcy (2000) 205 CLR 337; [2000] HCA 3
FLLH and Commissioner of Taxation (Practice and Procedure) [2025] ARTA 216
MXSN and Commissioner of Taxation (Practice and Procedure) [2025] ARTA 557
MXSN and Commissioner of Taxation (Practice and Procedure) [2025] ARTA 1399
VNBM and Commissioner of Taxation [2021] AATA 3579
ZFPR and Commissioner of Taxation [2025] ARTA 572
Administrative Review Tribunal (Common Procedures) Practice Direction 2024
Federal Court Rules 2011 (Cth)
Resentment or embarrassment at having her decision of 27 March 2025 challenged in the Federal Court; > > Contempt for counsel for the applicant; or > > Alignment with the respondent Commissioner.
Where, in the absence of any suggestion of actual bias, a question arises as to the independence or impartiality of a judge (or other judicial officer or juror), as here, the governing principle is that, subject to qualifications relating to waiver (which is not presently relevant) or necessity (which may be relevant to the second appeal), a judge is disqualified if a fair-minded lay observer might reasonably apprehend that the judge might not bring an impartial mind to the resolution of the question the judge is required to decide. That principle gives effect to the requirement that justice should both be done and be seen to be done, a requirement which reflects the fundamental importance of the principle that the tribunal be independent and impartial. It is convenient to refer to it as the apprehension of bias principle. > > The apprehension of bias principle may be thought to find its justification in the importance of the basic principle, that the tribunal be independent and impartial. So important is the principle that even the appearance of departure from it is prohibited lest the integrity of the judicial system be undermined. There are, however, some other aspects of the apprehension of bias principle which should be recognised. Deciding whether a judicial officer (or juror) might not bring an impartial mind to the resolution of a question that has not been determined requires no prediction about how the judge or juror will in fact approach the matter. The question is one of possibility (real and not remote), not probability. Similarly, if the matter has already been decided, the test is one which requires no conclusion about what factors actually influenced the outcome. No attempt need be made to inquire into the actual thought processes of the judge or juror. > > The apprehension of bias principle admits of the possibility of human frailty. Its application is as diverse as human frailty. Its application requires two steps. First, it requires the identification of what it is said might lead a judge (or juror) to decide a case other than on its legal and factual merits. The second step is no less important. There must be an articulation of the logical connection between the matter and the feared deviation from the course of deciding the case on its merits. The bare assertion that a judge (or juror) has an "interest" in litigation, or an interest in a party to it, will be of no assistance until the nature of the interest, and the asserted connection with the possibility of departure from impartial decision making, is articulated. Only then can the reasonableness of the asserted apprehension of bias be assessed. > > . . . > > This is not to say that it is improper for a judge to decline to sit unless the judge has affirmatively concluded that he or she is disqualified. In a case of real doubt, it will often be prudent for a judge to decide not to sit in order to avoid the inconvenience that could result if an appellate court were to take a different view on the matter of disqualification. However, if the mere making of an insubstantial objection were sufficient to lead a judge to decline to hear or decide a case, the system would soon reach a stage where, for practical purposes, individual parties could influence the composition of the bench. That would be intolerable.
Claims of apprehended bias arise not infrequently, as they have in this appeal, in respect of interlocutory proceedings. The usual position in relation to interlocutory proceedings is that an apprehension of bias is not per se manifested by an unfavourable finding. That is because often there will be instances prior to a final decision where a judge will require steps to be taken or not taken which disappoint one side or another in a proceeding. It is inherent in the interlocutory process that such preliminary decisions are made. Unfavourable findings, in such circumstances, are not to be taken by a fair-minded person as an expression that the judge has other than an impartial and unprejudiced mind in relation to the substantive proceeding.
Ground (a) - resentment or embarrassment regarding the interlocutory appeal
(a) First, it is a relatively common incident of the role of a Tribunal member that decisions are appealed. A fair-minded observer with knowledge of the legal system would know that appeals from Tribunal decisions are not at all uncommon. > > (b) Secondly, the assertion of resentment or embarrassment is made solely on the basis that a well-informed bystander would think a Tribunal member was embarrassed or had resentment for a party because of the mere fact of an appeal having been instituted in respect to an interlocutory decision. When considered against the frequency of appeals in this jurisdiction, it is unlikely that a fair-minded observer with knowledge of the legal system would regard it likely that a member would be embarrassed or resentful that an interlocutory appeal had been filed. > > (c) Thirdly, the mere fact of an interlocutory appeal, without more, is not a reason for a Tribunal member to recuse themselves from hearing the substantive matter which has been allocated to them. To do so would be contrary to the objectives of the Tribunal set out in section 9 of the Administrative Review Tribunal Act 2024 (Cth) (ART Act). The work of the Tribunal would rapidly grind to a halt if a party could delay a substantive hearing solely by filing an application to appeal an interlocutory decision. I accept there may be a situation when that is the appropriate course to take, but that would be a rare case. This is not one of those cases. > > (d) Fourthly, as is clear from my reasons,[9] my concern regarding the appeal was in respect to the competency application, not the fact of the appeal. The Commissioner confirmed that there was a competency challenge on foot, arising from the form of the appeal, which I understood to mean that the appeal had been brought under section 172 ART Act, not section 39B of the Judiciary Act 1903 (Cth). My interest was in the potential impact of the competency application, which suggested to me that it was highly unlikely that a decision on any substantive question in the appeal,[10] would be finally determined prior to the hearing in this matter in mid October 2025. > > (e) Fifthly, given that the appeal was dismissed prior to my hearing this application,[11] the ground has fallen away. The appeal was struck out as incompetent in the legal sense, having been brought under the ART Act, not as an application under the Judiciary Act. The Applicant submitted that the outcome of the appeal was irrelevant to this application, however I do not accept that submission. In my view, if a ground of the application for recusal is my apparent resentment or embarrassment at having my interlocutory decision appealed, and the appeal has been resolved by it being stuck out, any resentment or embarrassment must logically have been resolved.
Ground (b) - contempt for counsel for the Applicant
*_ The second basis articulated is apparent contempt for counsel for the Applicant.
(a) I acceded to the Applicant's requests for extensions of time in respect to filing its SFIC, in September and October 2024, and filing the amended SFIC, in June 2025. > > (b) To facilitate the Applicant being in a position to argue its preferred case, I adjourned the December 2024 directions hearing to February 2025, so as to enable an unfiled but potentially related matter to catch up with this matter, and thereby program the matters to be heard together. > > (c) In February 2025, when ordering hearing certificates to be filed for the substantive hearing, I nominated the months of August, September and October 2025 to provide the Applicant further time to achieve the objective in paragraph (b) above. > > (d) I listed the matter for substantive hearing for the only three days on which both parties were available in the identified months, listing it seven months in advance and thereby giving both parties ample time to properly finalise their cases and be ready for hearing. > > (e) In choosing the listing dates, I was conscious that in August and September the Applicant's director, who is a witness, was said to be entirely unavailable due to work commitments, so that the hearing was listed taking into account his commitments. > > (f) I had raised with the Applicant's counsel in March a legal issue which needed to be resolved arising from the Applicant's request to have video evidence taken from the USA.[14] That was quite appropriately resolved by the Applicant's lawyers, and the evidence is able to be heard by video, in accordance with the Applicant's request. > > (g) I permitted the Applicant to rely on certain matters raised in what was filed as a 'supplementary SFIC' in June 2025, objected to by the Commissioner, but which I understood from the argument I heard on 29 July 2025, did not in fact raise any new ground, meaning leave to raise the issues was not in fact required. > > 1. The proposition that a fair-minded lay observer with relevant knowledge would apprehend that I would not bring an open mind to the final determination of this matter because of my 'alignment with the Commissioner' is unsustainable.
(a) The director of the Applicant is not a party to the proceedings. > > (b) A private hearing request was made by the Applicant on 7 September 2023 under section 14ZZE of the TAA, and an order was made on 11 September 2023. > > (c) The order under section 14ZZE of the TAA gave rise to two things:[17] a private hearing, and the anonymisation of the identification of the taxpayer Applicant, by the use of a pseudonym. > > (d) Once an order has been made under section 14ZZE of the TAA, other measures may be taken, including in reasons for decision, to preserve the confidentiality of an applicant. One example is the manner in which a person associated with an applicant, for example a director, is referred to in written reasons, for example, by the use of 'the director', or Mr [initial], or Ms [initial]. Sometimes the matter will require pseudonyms to be used for associated companies, or other witnesses.[18] > > (e) There is no obligation under section 14ZZE of the TAA to conceal the identity of a director of an applicant in the Tribunal; the obligation of confidentiality is owed to the applicant, not to ancillary people. > > (f) If a party desires to have wider confidentiality than the quite limited confidentiality afforded by section 14ZZE of the TAA, orders may be made under section 70 ART Act. Generally, those orders would require conferral between the parties and, if a joint position cannot be agreed, the Tribunal will need to make a ruling. In either case, the making of orders under section 70 is not guaranteed and would need to be determined in accordance with the ART Act, in particular section 71(2), and the General Practice Directions. In my experience it is unusual for the Commissioner to take issue with a request for wider confidentiality orders. > > 1. The gravamen of the submission made was that the director, not the Applicant, was able to be identified by reason of some factual material included in the reasons, and by reference to him as 'Mr [initial]', which was said to be in breach of the private hearing order. As is plain from what I have said above, the information contained in my reasons dated 7 April 2025 does not in fact breach the order made under section 14ZZE of the TAA as it did not identify the Applicant. > 2. However, I accept, as counsel submitted, that the director believes he may be identifiable from the reasons. Whilst I accept that is his belief, I also note that his subjective belief is not a proxy for the fair-minded lay observer, nor does it prove he was in fact identified. > 3. As counsel acknowledged, if a party has a concern that someone has been inappropriately identified in reasons, it is open to request that the reasons be recalled and appropriately redacted. Counsel informed me he has followed that path in other matters. The Applicant did not request that the reasons be recalled and redacted, nor have wider confidentiality orders been requested under section 70 ART Act. An application for wider confidentiality orders has not been made in respect to the substantive hearing. The first and only time the matter was raised was in the Applicant's recusal submissions, filed on 2 September 2025, about 5 months after the reasons in MSXN (No 1) were published. > 4. In filing its appeal in the Federal Court of Australia on 5 May 2025, the full name of the Applicant was used,[19] as is required by the Federal Court Rules. This meant that for 4 months the Applicant's full name appeared in court lists published on the internet or the press, in the electronic court file, and on all documents pertaining to the matter. In September 2025, an order changing the name of the Applicant was made to reflect a recent name change, as part of the suite of orders made dismissing the appeal. > 5. Nothing in the Federal Court Appeal Reasons records any concern being raised by counsel regarding the disclosure of information regarding the director;[20] to the contrary, at [2] of the Federal Court's reasons, similar information is recorded to that which was said by the applicant to be "punitive" in my reasons in MSXN (No 1).[21] > 6. I do not accept that a fair-minded lay observer with knowledge of the relevant circumstances would regard the benign factual information I published as gratuitous or punitive, even if it did identify the director. Nor is it a basis for my recusal.
*_ Counsel relied on my refusal of the application made on 29 July 2025 as one of the factors displaying antipathy towards him. Putting that submission aside, having dealt with it substantially at ground (b) above, it is useful for something to be said regarding applications for adjournments of substantive hearings more generally.
A directions hearing is listed for Tuesday 29 July 2025.
. . .
The applicant respectfully submits that the hearing scheduled for October should be vacated pending the Federal Court proceedings. . . .because: (a) the Tribunal should not finally determine a review where the Federal Court may set aside the Tribunal's decision to refuse the enlargement of grounds; . . .
The applicant will move to this effect on 29 July 2025. Alternatively, the applicant invites the Tribunal to vacate the directions listed for 29 July and direct the applicant to file a written application and submissions within 14 days, with a corresponding submissions to the respondent, and all matters be listed in early September.
- I accept that pursuant to the ART Act sections 49 and 50, there is scope for informal or even oral applications to be made to adjourn or vacate a hearing.[23] However, the ART Common Procedures Practice Directions at [5.12] to [5.15] make it very plain that adjournment applications need to be put on a proper footing.
- In practical terms this requires, at least for represented parties:
(a) save for occasions of genuine urgency,[24] a written request, articulating proper grounds and identifying the arguments in favour of the adjournment;[25]
(b) it is expected that the party seeking to adjourn a substantive hearing will have conferred with any other parties to ascertain their attitude prior to advising the Tribunal of the application;
(c) prejudice to any other party typically needs to be addressed;
(d) any proposed programming directions that may need to be made if the outcome is successful should be provided;
(e) if, as a result of conferral, the application is opposed, the party opposing it should be provided with a proper response to any concerns it has raised, in a genuine attempt to limit the opposition, and accommodate the opponent's concerns; and
(f) most importantly, evidence in support of any application should be provided in advance of the hearing so that the Tribunal, and the opponent, has an opportunity to consider the material.
- It should be kept in mind that requesting a substantive hearing be adjourned or vacated is an indulgence which causes inconvenience to both the Tribunal and the other parties, as well as impacting other users of the Tribunal. Requiring parties with competent legal advisors to make what is a very serious application in a serious and considered manner, with a proper foundation and supported by evidence, is plainly appropriate. As a general proposition, a party, particularly a represented party, should not expect to obtain a vacation or adjournment of a substantive hearing without good reason, conferral with their opposing party, and a proper evidentiary foundation.
I certify that the preceding forty-three paragraphs are a true copy of the reasons for the decisions herein of Deputy President C Thompson SC
..................................[sgd]..................................
Australian Taxation Office Litigation and Legal Services
[1] MXSN and Commissioner of Taxation [2025] ARTA 557 (MSXN (No 1)).
[3] Email from the solicitors for the Applicant, dated 19 August 2025 11.25 am.
[6] [2000] HCA 63; (2000) 205 CLR 337, [6] - [8], [20].
[8] [2023] FCA 1252, [10] - [12].
[9] MXSN and Commissioner of Taxation (Practice and Procedure) [2025] ARTA 1399 (MXSN (No 2)), [18].
[10] The content of which was entirely unknown to me at that time because no information other than the mere fact of the appeal had been provided.
[13] Federal Court Appeal Reasons, [132].
[14] FLLH and Commissioner of Taxation (Practice and Procedure) [2025] ARTA 216.
[15] Applicant's submissions dated 2 September 2025, [81] - [82].
[16] Transcript of Tribunal proceedings on 18 September 2025, p 34.
[17] VNBM and Commissioner of Taxation [2021] AATA 3579, [6].
[18] See by way of example ZFPR and Commissioner of Taxation [2025] ARTA 572.
[19] Which at the time included the actual name of the director.
[20] Similarly to in the Tribunal, the director was not a party in the Federal Court proceedings.
[21] Federal Court Appeal Reasons, [2].
[22] Email from Mossensons, solicitors for the Applicant, dated 23 July 2025 7.23 pm.
[23] I use the terms interchangeably here.
[24] For example, occasioned by sudden illness, or last minute unforeseen unavailability for some other cogent reason, of a critical witness or counsel.
[25] This does not necessarily mean extensive written submissions need to be filed.
AZC20
Secretary, Depart
(2000) 205 CLR 337