Background
10 In 2004 the chief metrologist granted to Flogineering, and subsequently updated on 10 occasions, the approval to Flogineering for its flow meter (being a Diessel Model 12M-E DN50 G2 Milk Flowmetering System) that the hauliers had installed or came to install over the succeeding years on each of the 26 tankers. The conditions of the approval were (Flogineering being 'the submittor'):
CONDITIONS OF APPROVAL
General
Instruments purporting to comply with this approval shall be marked with pattern approval number 'NMI 5/6E/13A' and only by persons authorised by the submittor.
It is the submittor's responsibility to ensure that all instruments marked with this approval number are constructed as described in the documentation lodged with the National Measurement Institute (NMI) and with the relevant Certificate of Approval and Technical Schedule. Failure to comply with this Condition may attract penalties under Section 19B of the National Measurement Act and may result in cancellation or withdrawal of the approval, in accordance with document NMI P 106.
Auxiliary devices used with this instrument shall comply with the requirements of General Supplementary Certificates No S1/0/A or No S1/0B.
Signed by a person authorised by the Chief Metrologist to exercise their powers under Regulation 60 of the National Measurement Regulations 1999.
(emphasis added)
11 The primary judge found that the dairy industry was highly regulated and that an essential legal requirement with which both the hauliers and the processors had to comply was that the approval number had to have been applied to the flow meter used on each tanker to measure the flow and volume of milk, to signify that the equipment had a certified National Measurement Institute (NMI) accreditation. NMI was a Division of the Department of Industry, Innovation and Science responsible for measurement in respect of quality and quantity used in trade in Australia.
12 The primary judge found that by applying (i.e. displaying) the approval number on each flow meter on their tankers, the hauliers conveyed that that approval number had been applied by a person whom Flogineering had authorised to do so.
13 The hauliers had engaged Mr Raddatz to affix the approval number to the flow meter on each tanker, despite him not being a person whom Flogineering had authorised for that purpose in accordance with the condition in the certificate. Thus, the hauliers' use of the approval conveyed the misrepresentation; in essence by representing that the instrument complied with the legal requirements governing the hauliers' ability to collect and deliver bulk milk.
14 In the liability reasons, the primary judge found that the hauliers' purpose for making the misrepresentation was to satisfy, at least, milk processors (to whom the hauliers' tankers delivered bulk milk that they collected from various dairy farms each day) that the flow meters had the approval and so complied with the strict regulatory regime governing, among other matters, exact measurement of milk collected from and delivered to the processor.
15 The primary judge saw and heard witnesses called by both parties, including Carey McMahon, the owner and managing director of Flogineering, and Antony Miller, a former senior executive of Fonterra, and the principals of each of the hauliers, including Timothy Jensen who was a director of Blu Logistics and JR Bulk, at the liability hearing and subsequently heard witnesses give other evidence at the damages hearing.
16 His Honour found that Mr Jensen had been aware for a very long time, and well before the commencement of the litigation in 2016, that Mr McMahon was unhappy that the hauliers were applying the approval number to the flow meters on their tankers without Flogineering's authority or consent. His Honour found that Mr Jensen was the person on behalf of the hauliers who had negotiated contracts with the processors that specified that each haulier would ensure that its tankers complied strictly with all regulatory requirements, which included the need for each tanker to have the approval number applied to its flow meter. In addition, his Honour found that, despite Mr Jensen's awareness of Mr McMahon's concerns, from at least the time of the commencement of the litigation, the hauliers had spent a lot of money on their defence of it up to the conclusion of the damages hearing.
17 After delivering the liability reasons, the primary judge set down a hearing as to damages. He required Flogineering to particularise how it put its claim to have suffered loss or damage, including pursuant to s 236 of the ACL, because of the hauliers' contraventions. Flogineering's further amended particulars of loss alleged that all processors, or a substantial number of them, to which the hauliers had delivered bulk milk using tankers displaying the contravening approval number applied to their flow meters, were aware of the content of the NM Act and Regulations and their need to comply with those requirements (including that an instrument the subject of an approval number, such as a flow meter, be marked as complying with the NM Act and Regulations by, or with the authority of, the person holding the certificate for it applying the approval number to the flow meter) and "would therefore, in the course of their efforts to comply with the [NM Act] and Regulations, have noticed if any example of the instrument used by [one of the hauliers] was not so marked". The particulars also alleged that:
compliance with the NM Act and Regulations formed, or was likely to have formed, part of the contractual arrangements between each processor and the relevant hauliers;
but for the misrepresentation, it was likely that one or more of the processors would have insisted that the relevant haulier use a flow meter that actually complied with the NM Act and Regulations, by being marked with an approval number, and that marking be made or applied by a person with the lawful right to do so, in the manner contemplated by the approval (viz: Flogineering);
implicitly, the person who applied the approval number had not done so in accordance with all legal requirements;
Flogineering had suffered loss and damage because each processor to whom the relevant haulier had delivered milk had relied on the misleading or deceptive conduct the subject of the misrepresentation and continued to engage that haulier to deliver milk to it from dairies;
had a processor become aware of the misrepresentation, the relevant haulier would have had to purchase Flogineering's services, as the only person who could authorise the application of the approval number, to apply approval numbers to the flow meter on each of its tankers so as to maintain the haulier's contract with the processor.
18 The primary judge found that, under its contract with Blu Logistics, Fonterra had stipulated that each tanker used to collect and deliver milk be "fitted with accredited flow meter collection devices" that could measure and record the volumes of milk both collected from a dairy farm and unloaded at Fonterra's premises and Fonterra could inspect that equipment (including flow meters) to audit compliance with the requirements of, among others, the NM Act and Regulations ([98]-[103] in the damages reasons). Parmalat and other processors had similar expectations. The primary judge found that Mr Miller was responsible for the fleet of collection vehicles that Fonterra used to collect and deliver milk owned by both Fonterra and independent contractors, such as the hauliers. His Honour accepted Mr Miller's evidence in the liability reasons, which he set out again in the damages reasons (at [24]), that when working for Fonterra, he understood that anyone collecting milk from a dairy farm had to use a flow meter that complied with the NMI standards (scil: the NM Act and Regulations). He found in the liability reasons:
71 … Because the tolerance for error in measurement is small, flowmetering systems are much more accurate than earlier measures. Mr Miller says that in his experience farmers were however sceptical of the new flowmetering technology as inaccuracies in measurement had previously generally worked in their favour. He says that there was a lot of scrutiny over the technology and any questions from farmers or the processing facilities concerning volume were "escalated to me". Mr Miller says that in order to ensure that the Fonterra fleet complied with NMI "standards", Fonterra used the services of a company called CMV Truck and Bus Pty Ltd ("CMV") as a contractor to conduct annual calibrations on flowmetering systems used by the company. CMV was accredited by the NMI to conduct these calibrations. Mr Miller says that the flowmetering systems installed on the Fonterra fleet of trucks were purchased from Flogineering….
…
74 As to this question of the relationship (if at all) between the pattern approval number and the approval itself, Mr Miller was asked to explain his understanding of the role of "the number stated in the approval verses the approval itself". As to that, he said this (T, p 40, lns 24-28):
My understanding would be that the two are integrally linked. The number was the reference that needed to be made during the calibration process of the flow meters. It was important to us to know which was the approval and that was - we would know that by the number that was assigned to it.
…
76 Mr Miller says that when calibrated, the variations in measurement very rarely changed much more than +/- 0.1%. Mr Miller says that CMV would calibrate test vessels for him and certify the accuracy of the vessel. Mr Miller says that in his role at Fonterra he regularly looked at calibration records and any variation in accuracy recorded at each calibration. He also attended each depot to check the audited records.
77 Mr Miller says that accuracy of flow meters is important throughout the dairy industry. It is the basis upon which farmers are paid and the basis upon which milk companies measure "inbound milk". He says that because it is common practice to collect milk from more than one farm on the same truck, accuracy of measurement when the milk is loaded onto the truck is essential. Mr Miller says that this requirement for accuracy of measurement of milk is "vital" in the industry as it is how farmers get paid and it is part of an integral system for the milk processors to control inbound milk volumes along with a process for control of fat, protein and quality measurement.
(emphasis added)
19 His Honour arrived at his conclusions in his damages reasons after detailed consideration of all of the evidence in both hearings. Critically, his Honour set out his conclusions in [177] of his damages reasons in 23 subparagraphs, after having had regard to all of the evidence. The primary judge found that:
each processor knew and understood that the conduct of a milk processing undertaking required it to exercise a high level of prescription or control over and in respect of the many regulatory requirements governing the provision of its services, particularly in relation to how persons such as the hauliers provided their bulk haulage services. The processors knew and understood that each flow meter on a tanker had to have NMI accreditation under the NM Act and Regulations, including through the application to it of an approval number, to certify that it was properly calibrated, in accordance with the regulatory specifications, to measure accurately the volume of milk that each of the various dairy farms had delivered to a tanker on each day and the total milk that that tanker delivered to the processor;
the hauliers had given detailed attention to the need for regulatory compliance in their pre-contractual written presentations to various processors when seeking or tendering for work, and the provisions in agreements that they had with two of the processors, demonstrated the degree of prescription that processors required in relation to the hauliers' compliance with, among other matters, the NM Act and Regulations.
accordingly, the processors knew that approvals, including the right to apply an approval number to a flow meter, under that legislation had to be made by a person authorised to do so;
both Mr Jensen and Stephen Wastell, a director of Blu Logistics, Wastell and Wadene, understood the importance to a processor of the need for each of their tankers to have a flow meter that had an approval number applied to it;
the hauliers thought that it was material and important, as well as a "selling point" for them, to apply an approval number to each of the flow meters on the tankers so as to be in a position to offer services to the processors that complied in all respects with the NM Act and Regulations, including by having NMI accreditation;
Mr Jensen and Mr Wastell never informed any of the processors that the approval number on the hauliers' tankers had not been applied by or with the authority of Flogineering as the only person holding a certificate entitled to do so, but by someone (Mr Raddatz) who had no legal basis for applying it, because that would have put at risk their prospect of winning or holding a contract to supply their services to the processors;
the hauliers knew that they had to, first, have NMI accreditation to be able to apply and, secondly, actually apply an approval number to a flow meter corresponding to that NMI accreditation; and
the hauliers chose to apply Flogineering's approval number to their tankers' flow meters for the purpose of demonstrating that they complied with the NM Act and Regulations.
20 His Honour's findings in the damages reasons that were central to the reliance issue were as follows :
(12) I accept that there is no direct evidence that a processor checked an instrument installed on any one of the [hauliers'] 26 trucks referred to in the schedule to Declaration 1 so as to note and be satisfied that an Approval Number was affixed to the instrument in apparent conformity with the relevant approval and that in doing so saw [Flogineering's] Approval Number affixed without authority and then took a step such as entering into a contract with one of the [hauliers]or took the step of continuing in an arrangement with one or more of the [hauliers]in reliance on the affixing of the Approval Number on an assumption that the Approval Number was lawfully applied, when it was not.
(13) The [hauliers] say that that is the end of the matter so far as any case made in reliance upon s 236(1) of the ACL is concerned.
(14) However, that is not so as the question of whether [Flogineering] has suffered loss because of the conduct of the [hauliers] in circumstances where the conduct contravenes ss 18 and 29 of the ACL (having regard to the two declarations made by the Court) must be determined having regard to the whole of the evidence, the nature of the relationship between the parties and the character of the undertaking in which they were participating, in light of the relevant conduct as found.
(15) There can be no doubt, as the question is already the subject of findings and two declarations, that the [hauliers] misled the processors as an element of their trade in their bulk milk haulage services businesses. All aspects of the NMI accreditation were material to the processors. It is difficult to imagine a more central element of a milk processing undertaking (apart from the critical matter of food safety and hygiene standards and best practice) than confidence in the mind of the processors that bulk milk haulage companies can accurately measure the volume of milk collected from dairy farms and transferred to the processors, in complete conformity with approvals governing accreditation in relation to the measurement of milk volumes collected and transferred to the processors. I am willing to infer, based on the overwhelming evidence of foundation facts going to accreditation, that the processors relied on the affixing of the Approval number to instruments by the [hauliers]as a critical element of the provision of their services and I am willing to accept that it is more likely than not that from time to time producers took a step of checking to see whether an Approval number had been affixed to instruments.
(16) I am satisfied that on the whole of the evidence, reliance is made out.
(bold emphasis added; italic emphasis in original)
21 The primary judge set out the following findings in the damages reasons (at [177(17)-(23)]) for discounting by 25% the compensation to which Flogineering was entitled under s 236(1) of the ACL for the loss of gross profit that it sustained because of the hauliers' contraventions of ss 18 and 29(1)(e) and (g):
(17) In relation to the question of the quantum of the loss, I accept the evidence of Mr Lytras and I accept that the gross profit in relation to the 26 trucks and tankers the subject of the schedule to the declaration amounts to $606,636.00.
(18) However, a question arises in relation to the counterfactual for the purpose of determining the measure of loss.
(19) The [hauliers] contend that had they understood that there was an issue as to the quality and character of their conduct in affixing [Flogineering's] Approval number to the relevant instruments, they would have transitioned to the THS-Piper system and would have done so as from the approval date of 10 December 2010. However, I do not accept that evidence. In the affidavits on this question, Mr Jensen and Mr Wastell put the position in black and white emphatic terms that had they known the true position about what was wrong or not in affixing [Flogineering's] Approval number to their instruments, they would have transitioned to the THS-Piper system from 10 December 2010. In that sense, those two deponents simply "swear the issue".
(20) In cross-examination, the position was not as black and white or emphatic as that set out in the affidavits. In fact, the correct position seems to be that the [hauliers] relied upon the DME Mobicom and MTC system (software) as a "stepping stone" to the Smarta model. It is unlikely that they would have moved to the THS-Piper model from 10 December 2010 for all new acquisitions and then to the Smarta model once that model had been approved. In addition, the [hauliers] had emphasised to the producers throughout the period that they had invested substantially in the DME Mobicom system and the MTC system. It is more likely than not that they would have continued with the system with which they were familiar and in which they were heavily invested, until they found themselves in a position to transition to the Smarta model. In the documents, there are references by the [hauliers] to a new flowmetering system being developed by them. It emerges in 2015 but is not present in the 2016 or 2017 documents. It appears again in 2018. In addition, [Flogineering] makes the point that although the [hauliers] were confronted by [Flogineering] about the use of its Approval number, the [hauliers] nevertheless persevered in the defence of the litigation, contested the liability trial and did not transition until late in the chronology after having expended a significant sum on the litigation. That approach seems inconsistent with a ready willingness to transition to an entirely new flowmetering system for the purposes of the counterfactual hypothesis.
(21) In making these remarks about the evidence of Mr Jensen and Mr Wastell, I do not mean to suggest that either witness sought to mislead the Court about these matters. Rather, each witness sought to assist the Court. However, in forming views about what the [hauliers] would have done in the postulated circumstances and swearing the issue in the way they did in their affidavits is simply an example of one of the well-known heuristics in the form of hindsight bias discussed extensively in the leading work of the Nobel Prize winning economist, Emeritus Professor Daniel Kahneman (discussed in Kahneman's work, Thinking Fast and Slow, Penguin Group, 2011 (first published in the United States by Farrar, Straus and Giroux, 2011); the academic work which led to the Nobel Prize on heuristics was undertaken by Kahneman together with Amos Tversky although Tversky was not awarded the Nobel Prize as he had died before it was awarded), which, understandably, has affected their view.
(22) Nevertheless, the possibility that the [hauliers] may have turned to an alternative system cannot be excluded and in order to properly determine the quantum of the opportunity lost to suffered [Flogineering] because of the conduct, it is necessary to discount the amount of $606,636.00 to take account of that possibility. I discount the quantum by 25% with the result that the quantum of the loss is $454,977.00.
(23) Having regard to all of these considerations, is [Flogineering] entitled to judgment in an amount of $454,977.00 together with interest for the period during which it has been held of the loss. [Flogineering] is also entitled to the costs of and incidental to the proceedings. Having regard to the evidence of Mr Jensen, Mr Wastell and Mr Robertson, judgment is to be entered for the full amount against all [hauliers] having regard to the joint participation in the totality of the conduct as reflected in the documents and the evidence.