5 Whilst this passage expresses the general category of case in which an order for costs against a non-party should be made, their Honours recognise at 192 that no implicit restriction is to be put upon the scope of that power, save that it is to be exercised "judicially and in accordance with general legal principles pertaining to the law of costs". Section 43(2) of the Federal Court of Australia Act provides that the power to award costs in all proceedings before the Court "is in the discretion of the Court or Judge".
6 The respondents contend that the three circumstances identified by Mason CJ and Deane J are present in this case. They submit that the evidence establishes beyond question that the unsuccessful applicants are people of straw; Kebaro has played an active part in the conduct of the litigation; and Kebaro, and the persons on whose behalf it was acting, and by whom it was appointed, had an interest in the subject matter of the litigation. Kebaro was controlled by Mr Chapman and the respondents contend that Kebaro was acting at relevant times for the applicants, Mr and Mrs Chapman (the Chapmans).
7 Counsel for Kebaro, however, contend that the notices of motion are without merit and should be dismissed because Kebaro played no active part in the conduct of the litigation, and has no interest in its subject matter. Kebaro contends that it did not fund the litigation in the sense of providing its "own funds at risk". Further, and in any event, Kebaro contends that the notices of motion should be dismissed as it was at no time during the course of the proceedings warned that an application for non-party costs could be made against it if the applicants failed.
8 The affidavit material filed by the Commonwealth respondents in support of the notices of motion is extensive. On 3 May 2002 the Court directed that Kebaro file within four weeks whatever affidavit or other material it wished to rely on in opposition to the claim against it. It has filed no material. However, the respondents concede that at no time before judgment was Kebaro put on notice by the respondents that an order for non-party costs might be made against it.
9 The respondents rely on the following events and evidence to support their claim for costs against Kebaro.
10 The principal proceedings were commenced on 23 May 1997 by the Chapmans. The proceedings were brought by them as assignees pursuant to two deeds of assignment dated respectively 22 May 1997 (the first deed of assignment) and 25 September 1997 (the second deed of assignment). The Chapmans sought to recover damages which they alleged that Binalong Pty Ltd (Receivers and Managers appointed) (In Liquidation) (Binalong) had suffered in consequence of the wrongful conduct of each of the respondents. Their claims are described in Chapman (No 5) at [149] to [160].
11 In their defences the respondents pleaded that the deeds of assignment were not valid and effective. This led to an application by the Chapmans to join Binalong as an applicant, and leave to do so was granted pursuant to O 6, r 8 of the Federal Court Rules on 4 September 1998: Chapman v Luminis Pty Ltd (1998) 86 FCR 513 (Chapman (No 1)). The terms of the order giving leave assume some importance, and are discussed below.
12 The action as it proceeded to trial was constituted with the Chapmans and Binalong as applicants, and the Luminis respondents and the Commonwealth respondents as the five named respondents.
13 Mr Chapman was a director of Binalong, and the Chapmans owned 50% of the issued shares, the remainder being owned by Mr Chapman's mother, Ruth Galle Chapman. Binalong was the developer of a marina complex on Hindmarsh Island, future stages of which were dependent upon the construction of the Hindmarsh Island Bridge. Even before action was taken under the Aboriginal and Torres Strait Islander Heritage Protection Act 1984 (Cth) to halt the construction of the bridge, Binalong was in dire financial straits. On 30 March 1994 its financier, Partnership Pacific Ltd (PPL), served a notice of demand for some $15.4 million. The demand was not met and Receivers and Managers were appointed on 8 April 1994. On 2 May 1994 PPL applied to the Supreme Court of South Australia to wind up Binalong. The order was later made on 8 August 1994.
14 On 5 May 1994 Kebaro was incorporated. The sole director is, and always has been, Mr Chapman. It had a paid-up share value of $3. On 6 May 1994 The Lincoln Trust was established by deed. It is a discretionary trust, the beneficiaries being Ruth Galle Chapman and her descendants and their spouses. Kebaro was appointed trustee. The Trust Deed empowered Mr Chapman to remove the trustee and appoint others.
15 A deed dated 30 June 1997 obtained by the respondents during discovery, announces that Mr Chapman, by that deed, removed Kebaro as trustee of the Lincoln Trust and appointed himself and Mrs Chapman as trustees in its place.
16 The Chapmans have given evidence on a number of occasions in the course of the proceedings that they entered into the first deed of assignment and the second deed of assignment as trustees for The Lincoln Trust, although there is no mention of the fact in either of the deeds of assignment, or any contemporaneous declaration of trust or other document to verify that assertion. Their evidence is that The Lincoln Trust was established for the purpose of prosecuting the proceedings, and that apart from the interest received under the assignments, the Trust has no other assets.
17 On 30 June 1997 The Galle Trust was established by deed, and Kebaro was appointed trustee. The Galle Trust is a discretionary trust. Like The Lincoln Trust, the potential beneficiaries of The Galle Trust are Ruth Galle Chapman and her descendants and their spouses.
18 In his evidence in the principal proceedings, Mr Chapman deposed that between the months of May and September 1997 confidential negotiations took place between PPL, its holding company Westpac Banking Corporation (Westpac) and the Chapmans, concerning the sale and purchase of the marina. That negotiations were taking place during that time was confirmed by a senior officer of Westpac in the course of his evidence at trial: see Chapman (No 5) at [762]-[766]. The trial evidence indicates that the Chapmans were trying every way possible to regain control of the marina development, and, as a part of the incentive being offered by them to Westpac/PPL, proposed that Westpac/PPL receive a proportion of the proceeds of the action to be taken by them against the respondents. Westpac business records indicate that the proportion under consideration was 50%.
19 The terms of the first deed of assignment dated 22 May 1997 (the day before the commencement of these proceedings) assigns to the Chapmans causes of action against the first, second and third respondents, Luminis Pty Ltd, Dr Fergie and Prof Saunders. The stated consideration payable to the liquidator of Binalong is the sum of $1 and 20% of the net proceeds from pursuing the assigned causes of action. Clause 4 of the deed provides:
"The Chapmans will diligently pursue the causes of actions only in their own names, and use their best endeavours within their available resources to maximise the return to the Company [Binalong] from the same as soon as reasonably practicable."
By cl 8, the Chapmans agreed that if they are in breach of any obligation pursuant to the deed they will assign back to Binalong the causes of action for the consideration of $1.
20 In September 1997 the Chapmans reached agreement with Westpac/PPL about the sale of the marina. Many transactions were settled between them and other parties during that month. It is only necessary to refer to some of them.
21 On 19 September 1997 The Hindmarsh Trust was established by deed. Kebaro was appointed the trustee. The Trust was a discretionary one, in favour of the Chapmans and their children. The evidence is that The Galle Trust was established to become the owner of that part of the marina's operation that involved the development and sale of land, and that The Hindmarsh Trust was to operate the mooring and other water orientated aspects of the marina.
22 On 25 September 1997 a complex deed of sale was executed by many parties pursuant to which Kebaro acquired the marina from Westpac/PPL as mortgagees in possession. The transaction was settled on 30 September 1997. Since that time Kebaro has operated the marina development ostensibly as trustee for The Galle Trust in respect of the land development, and as trustee of The Hindmarsh Trust in respect of the other aspects of the undertaking.
23 Recitals T and V of the deed of sale refer expressly to the first and the second deed of assignment respectively. Recital W says that the Chapmans intend to join Mr Tickner and the Commonwealth as defendants in the litigation.
24 Besides Westpac and PPL, the parties to the deed of sale include Kebaro, Ruth Galle Chapman and the Chapmans and their children. At the outset, Kebaro is described as "the purchaser", "in its capacity as trustee of the trust known as 'The Galle Trust'". However, in the body of the deed at cl 20.3.2.1, the purchaser and the Chapmans represent, warrant, undertake and agree with Westpac and PPL that:
"The Purchaser enters into this Deed and any other security required to be given by the Purchaser under this Deed both in its own right and as Trustee of the Galle Trust."
Kebaro's precise role in the transaction, whether as trustee or principal or both, is not easy to understand, but I do not think that difficulty is material to the present application.
25 The second deed of assignment was made on 25 September 1997. By that deed Binalong assigned, inter alia, its causes of action against Mr Tickner and the Commonwealth to the Chapmans. Clause 3 of the deed relevantly provided:
"3.1 As consideration for the assignment the Chapmans will pay $1.00 upon the execution of this deed.
3.2 In the event that the Chapmans receive any proceeds by exercising the just terms rights or bringing the Commonwealth causes of action, they must pay 50% of the net proceeds of the same to the Liquidator and in consideration of this Deed the Chapmans agree to pay a further 30% of any net proceeds recovered (a total of 50%) of the net proceeds from any cause of action referred to in the May Deed. In this regard, clause 3.2 of the May Deed is varied by changing '20%' to '50%'."
Clause 4, like the corresponding clause in the first assignment, imposes an obligation on the Chapmans to diligently pursue the assigned causes of action. However, the second deed does not contain any provision for the re-assignment in the event of breach.
26 The terms of cl 3.2 are significant. Retrospectively the proportion of the proceeds from the action payable to the liquidator (in reality, because of the Westpac/PPL securities, to Westpac/PPL) have been increased from 20% to 50%. Given the evidence already mentioned regarding the negotiations taking place between May and September 1997 between the Chapmans and Westpac/PPL, the inference is that the increased percentage is part of the deal struck with Westpac/PPL.
27 In consequence of the second deed of assignment, and the amendment made by it to the first deed of assignment, on 25 September 1997, the day when the deed of sale was executed, Westpac/PPL was, in effect, entitled to 50% of the proceeds of the action against the five respondents, which action the Chapmans had undertaken to diligently pursue. The respondents not surprisingly therefore draw attention to cl 21 of the deed of sale and contend that it is a reflection of a likelihood that parties to the deed recognised the potential for the respondents to seek security for the costs of the action, and potentially a non-party costs order against Westpac/PPL should the action fail. Clause 21 provides:
"21 FERGIE/SAUNDERS ACTION AND TICKNER/COMMONWEALTH ACTION
21.1 The parties to this Deed acknowledge that Tom and Wendy Chapman in their capacity as trustees of The Lincoln Trust have commenced the Fergie/Saunders Action and may commence the Tickner/ Commonwealth Action.
21.2 The Purchaser and the Guarantors acknowledge and agree that if, for any reason whatsoever, an Order is made by the Court or Courts in which the Fergie/Saunders Action and/or the Tickner/Commonwealth Action have been commenced whereby either or both of PPL and Westpac are required to either give security for or to pay costs to the Defendants in those actions:
21.2.1 that they will indemnify PPL and Westpac and keep them indemnified in respect of any moneys which PPL and/or Westpac may be required to pay by way of costs under any such Order and pay to Westpac and/or PPL any amount so paid by them or either of them by way of such costs when the balance of the purchase price payable by the Purchaser for the Land is paid or if such balance has been paid then upon demand.
21.2.2 that payment by the Purchaser to PPL and/or Westpac of any amount so paid by them or either of them by way of such costs will be secured by the Chapman Securities.
21.3 In the event that an Order for security for costs or for the payment of costs is made against either or both of PPL or Westpac in the Fergie/Saunders Action and/or the Tickner/Commonwealth Action, the Purchaser and the Guarantors, and in particular Tom and Wendy Chapman, undertake and agree with PPL and Westpac that they will not continue or permit allow or procure the continuance of those actions or either of them unless and that any further prosecution of those actions or either of them will be subject to:
21.3.1 Westpac and/or PPL consenting to and approving the continuation of the prosecution of such actions, which consent and approval may be withheld or given on such terms and conditions as Westpac and/or PPL in their/its absolute discretion shall determine; provided that such consent and approval maybe withheld only if advice is received from senior counsel either approved or appointed by Westpac or PPL that neither of those actions has any reasonable prospect of success on the question of liability and that the quantum of damages likely to be recovered under them or either of them as the case may be, will not be sufficient to justify their continued prosecution; and
21.3.2 if so required by Westpac and/or PPL, the providing by the Purchaser and/or the Guarantors to Westpac and/or PPL of such further security for the repayment of those costs to Westpac and/or PPL as Westpac and/or PPL may reasonably require over property legally or beneficially owned by the Purchaser and/or the Guarantors or any of them or to which they or any of them have any legal or beneficial right or entitlement at that time."
Thus, under cl 21.2 Kebaro has agreed, should the occasion arise, to indemnify Westpac/PPL against any liability incurred by way of costs. Further, the respondents stress the importance of cl 21.3, which they contend indicates that Kebaro acknowledged, and undertook to exercise when necessary, control over the prosecution of the litigation.
28 The continued prosecution of the litigation by the Chapmans assumed importance in another respect under the deed of sale. By cl 5 the Land (effectively the marina complex) is sold subject to a registered debenture charge granted by Binalong to PPL. The floating charge crystallised on the appointment by Westpac/PPL of agents to enter into possession of the Land.
29 Recital X acknowledges that the causes of action that are the subject of the litigation are subject to the charge (a result presumably achieved by clauses in the deeds of assignment which charge the assigned choses in action with the due performance and observance of the terms and conditions of the deeds of assignment in favour of Binalong: see cl 6 in each deed of assignment). However, the deed of sale provides for the discharge of the charge in cl 24 which provides:
"24. BINALONG DEBT
24.1 Westpac and PPL acknowledge, undertake and agree with the Chapmans, and in particular Thomas Lincoln Chapman, Wendy Jennifer Chapman and Ruth Galle Chapman, the Associated Companies and MS Co that upon payment to PPL or to the Liquidator of Binalong, as the case may be, of all moneys which may be or become due by Thomas Lincoln Chapman and Wendy Chapman to the Liquidator of Binalong under the First Assignment of Rights [the first deed of assignment] and the Second Assignment of Rights [the second deed of assignment]:
24.1.1 that Westpac and PPL will accept the same in full satisfaction and discharge of the obligations under any guarantee or guarantees which may have been given by Thomas Lincoln Chapman, Wendy Jennifer Chapman or Ruth Galle Chapman, the Associated Companies and MS Co to PPL in respect of the Binalong Debt and which are either contained in or form part of the Binalong Securities; and
24.1.2 that PPL will give such releases, discharges and assurances in respect of such guarantees and any security which PPL may hold over the Land and/or the Binalong Assets which forms part of the Binalong Securities as may reasonably be required in the circumstances. Any such release, discharge or assurance shall be at the cost in all things of Thomas Lincoln Chapman, Wendy Jennifer Chapman, Ruth Galle Chapman, the Associated Companies and MS Co.
24.2 It is expressly acknowledged and agreed by the Chapmans, the Associated Companies and MS Co that until the payments referred to in Clause 24.1 have been made and any release discharge and assurance referred to in that Clause is given by PPL all of PPL's rights against Binalong and under such of the Binalong Securities as shall then be in force and effect shall continue in full force and effect, until the payments referred to in Clause 24.1 have been made.
…" (emphasis added)