claimed variation to the undertakings given by the applicant on 14 march 2013
25 I made Freezing Orders against the respondents on 14 March 2013. Those orders were made ex parte and were granted on an interim basis. On 2 April 2013, those orders were continued until further order. Those orders were confined in their operation to the Australian assets of the respondents. They did not have effect against assets held by the respondents in other jurisdictions.
26 On 28 May 2013, the first respondent and a non-party corporation associated with the first respondent, Gujarat NRE Limited (ACN 121 382 438) gave undertakings to the Court in the following terms:
2. The first respondent by its Counsel undertakes to the Court not to dispose of, deal with, encumber or diminish any of the shares it holds in Gujarat NRE Limited ACN 121 382 438 up to and including the earlier of the date of the determination of either:
(a) The applicant's Interlocutory Application filed on 22 May 2013; or
(b) Any Interlocutory Application filed by the respondents to vary the Orders in Annexure A to the Orders made on 14 March 2013 (varied on 22 March 2013 and 25 March 2013).
3. Gujarat NRE Limited ACN 121 382 438 by its Counsel undertakes to the Court not to dispose of, deal with, encumber or diminish any of the shares it holds in Gujarat NRE Coking Coal Limited (ASX code GNM) up to and including the earlier of the date of the determination of either:
(a) The applicant's Interlocutory Application filed on 22 May 2013; or
(b) Any Interlocutory Application filed by the respondents to vary the orders in Annexure A to the Orders made on 14 March 2013 (varied on 22 March 2013 and 25 March 2013).
4. The undertakings given by the first respondent and by Gujarat NRE Limited in paragraphs 2 and 3 above are given without prejudice to the rights of the respondents and Gujarat NRE Limited ACN 121 382 438 to contest the joinder of Gujarat NRE Limited ACN 121 382 438 to the Interlocutory Application filed on 13 March 2013 and to contest the relief sought against them at any hearing of the Interlocutory Application filed on 22 May 2013.
27 The undertakings given to the Court by the first respondent and by Gujarat NRE Limited on 28 May 2013 gave an additional measure of protection to the applicant pending the final hearing of its Application. Those undertakings continued in force right up to the date of the hearing before me and the making of final orders by me on 7 August 2013.
28 As part of the Orders and Notes made by me on 7 August 2013, I noted that:
… in aid of enforcement of the above declaration and orders and upon the applicant by its solicitor continuing the undertakings as to damages given to the Court on 14 March 2013 (and continued thereafter) and on 28 May 2013:
11. The first respondent by its solicitor undertakes to the Court that, until further order, it will not dispose of, deal with, encumber or diminish any of the shares which it holds in Gujarat NRE Limited (ACN 121 382 438).
12. Gujarat NRE Limited (ACN 121 382 438) by its solicitor undertakes to the Court that, until further order, it will not dispose of, deal with, encumber or diminish any of the shares which it holds in Gujarat NRE Coking Coal Limited (ASX code GNM).
13. In accordance with Order 3 made on 2 April 2013, the Freezing Orders in Annexure "A" to the Orders made on 14 March 2013 (as varied on 25 March 2013) are to continue in place until further order.
29 The effect of the matters which I noted as part of the Orders and Notes made on 7 August 2013 was that the freezing order regime first ordered on 14 March 2013 as supplemented by the undertakings given to the Court by the first respondent and by Gujarat NRE Limited on 28 May 2013, were continued post-judgment, in aid of enforcement and until further order.
30 The freezing order regime which continued in place after I made final orders on 7 August 2013 was ordered pursuant to r 7.35 FCR and the inherent power of the Court.
31 An appeal by the respondents from the orders which I made on 7 August 2013 was dismissed by the Full Court with costs on 30 September 2013 (Gujarat NRE Coke Ltd v Coeclerici Asia (Pte) Ltd [2013] FCAFC 109).
32 Schedule A to the Freezing Orders made by me on 14 March 2013 contains the undertakings which the applicant gave to the Court on 14 March 2013 as a condition of the Court granting the Freezing Orders.
33 Paragraphs (6) and (7) of Schedule A to those Freezing Orders are in the following terms:
(6) The applicant will not, without leave of the Court, use any information obtained as a result of this Order for the purpose of any civil or criminal proceedings, either in or outside Australia, other than this proceeding.
(7) The applicant will not, without leave of the Court, seek to enforce this Order in any country outside Australia, or seek in any country outside Australia an order of a similar nature or an order conferring a charge or other security against the respondent or the respondent's assets.
34 By its Amended Interlocutory Application, the applicant seeks to be released from that part of the undertaking set out in par (7) of Schedule A which begins in the second line with the words "… or seek in any country …" and continues to the end of that paragraph. If so released, para (7) of Schedule A would read:
(7) The applicant will not, without the leave of the Court, seek to enforce this Order in any country outside Australia.
35 Given that the existing Freezing Orders operate only in respect of the respondents' Australian assets, it is difficult to imagine what could be done to enforce those orders outside Australia. Nonetheless, the applicant has not sought to be released from the first part of undertaking (7) and I will deal with its present application upon the basis that that part of the undertaking is to remain on foot.
36 In its Reply Submissions filed on 6 February 2014, the applicant informed the Court and the respondents' solicitor that, if necessary, in order to obtain the variation which it seeks, it would be willing to give an additional undertaking to the Court in the following terms:
If the applicant seeks in any country outside Australia an order of a similar nature or an order conferring a charge or other security against the respondents or the respondents' assets, it will take steps to relist this proceeding for directions within seven (7) days of doing so, or as directed by the Court.
37 The undertakings which the applicant gave in Schedule A to the Freezing Orders made by me on 14 March 2013 reflect the terms of the example form of Freezing Order made without notice forming part of the Court's Practice Note CM9 dated 1 August 2011 (the FCA example Freezing Order). In particular, paragraphs (6) and (7) of Schedule A to the Orders made by me on 14 March 2013 are in precisely the same terms as paragraphs (6) and (7) of Schedule A to the FCA example Freezing Order.
38 It is important to note the following matters in respect of Practice Note CM9:
(a) Paragraph 2 of the Practice Note itself is in the following terms:
This Practice Note addresses (amongst other things) the Court's usual practice relating to the making of a freezing order and the usual terms of such an order. While a standard practice has benefits, this Practice Note and the example form of order annexed to it, do not, and cannot limit the judicial discretion to make such order as it appropriate in the circumstances of the particular case.
(b) The terms of the heading to Practice Note CM9 and of the language deployed in the various paragraphs contained in Practice Note CM9 make reasonably clear that the Practice Note is primarily directed to asset preservation orders granted as an interim remedy before judgment. The Practice Note is not particularly directed to Mareva-time relief granted in aid of enforcement of a judgment.
(c) If granted on an interim basis before judgment, the freezing order should not be in place for an extended period before being reconsidered by the Court in the presence of the parties affected by the freezing orders.
(d) Par 15 of the Practice Note is in the following terms:
The rules of court confirm that certain restrictions expressed in The Siskina [1979] AC 210 do not apply in this jurisdiction. First, the Court may make a freezing order before a cause of action has accrued (a 'prospective' cause of action). Secondly, the Court may make a free-standing freezing order in aid of foreign proceedings in prescribed circumstances. Thirdly, where there are assets in Australia, service out of Australia is permitted under a new 'long arm' service rule.
39 Practice Note CM9 does not provide any explanation or guidance as to why the FCA example Freezing Order contains undertakings in the terms of pars (6) and (7) of Schedule A to that example Order.
40 Division 7.4 FCR (being the Rules of Court in relation to Freezing Orders) was developed under the auspices of the Australian Council of Chief Justices. Practice Note CM9 and the FCA example Freezing Order conform to similar Practice Notes promulgated by other courts in Australia (for example, see Practice Note SC Gen 14, promulgated by the Supreme Court of New South Wales).
41 The Example Freezing Order adopted by Australian courts as part of such Practice Notes has its provenance in the Example Freezing Order adopted by the English High Court of Justice as part of Practice Direction 25A of the Civil Procedure Rules (Eng) (the English Practice Direction).
42 Paragraphs (6) and (7) of Schedule A to the FCA example Freezing Order correspond with the undertakings set out in pars (9) and (10) of the undertakings contained in the Example Freezing Order attached to the English Practice Direction. The terms of pars (9) and (10) in that Practice Direction are virtually identical to the terms of pars (6) and (7) in the FCA example Freezing Order.
43 I note that the part of par (7) from which the applicant presently seeks to be released is bracketed by square brackets in par (10) of the Example Freezing Order contained in the English Practice Direction. Those brackets indicate to me that the English Courts take the view that that part of the undertaking will not always be required to be given.
44 In support of its application to be released from part of the undertaking set out in par (7) of Schedule A to the Freezing Orders which I made on 14 March 2013, the applicant submitted that the Court should not be reluctant to depart from a pro forma undertaking if the circumstances demand it. The applicant submitted that the Receivers have experienced difficulty in selling the relevant shares. The applicant also submitted that it is only natural that it should now look at taking steps to enforce its award in other places. The applicant also submitted that there was no reason in principle for the undertaking to be maintained. Whilst it acknowledged that, in England, observations have been made by judges and commentators that the purpose of requiring an applicant to give undertakings in the terms of par (6) and par (7) of Schedule A to the FCA example Freezing Order was to prevent harassment of a defendant by having to confront multiple actions around the world, no such concern arises in the present case. The applicant submitted that, at the present time, all that it wished to do was to leave open the possibility of taking enforcement action in jurisdictions outside Australia and that it should now be permitted to do so.
45 The respondents opposed the applicant's application to be released from part of its undertaking. The respondents submitted that the purpose of the undertaking was to prevent the harassment of the respondents in multiple actions around the world. In support of that proposition, the solicitor for the respondent cited and relied upon a passage from Tate Access Floors Inc v Boswell [1991] Ch 512 at 525F per Browne-Wilkinson VC. The passage relied upon is in the following terms:
… I wholly accept that, in any case where a world-wide order is made, it is capable of operating oppressively if the plaintiffs are free to start other proceedings in other jurisdictions (thereby exposing the defendants to a multiplicity of proceedings) and to use information obtained under compulsion in this jurisdiction for the purposes of pursuing criminal or civil remedies in other jurisdictions. It is for that reason that the Court of Appeal has laid down that, as a term of any world-wide Mareva relief, the order should contain undertakings not, without the leave of the court, to start such proceedings or use such information: see Derby & Co Ltd v Weldon [1990] Ch 48, 55, 56, 60, 63; Babanaft International Co SA v Bassatne [1990] Ch 13, 46; Republic of Haiti v Duvalier [1990] 1 QB 202.
46 In Tate Access Floors Inc, Brown-Wilkinson VC was dealing with an application that world-wide Mareva and Anton Piller orders be discharged. They had been granted on an interim basis before judgment against all defendants, some of whom resided in England and some of whom were based elsewhere.
47 The solicitor for the respondents then submitted that the Receivers had recently informed the Court that they were hopeful that a sale of the relevant shares could be achieved by late March 2014 and that, while the Receivers were continuing to endeavour to sell the relevant shares, the undertaking should not be varied. To vary it, according to the solicitor for the respondents, would lead to oppression of the respondents. It was also submitted on behalf of the respondents that the Court should not entertain the present application unless full particulars of the action which the applicant intends to pursue are provided both to the Court and to the respondents.
48 In reply, Counsel for the applicant submitted that, given the uncertainty currently surrounding the potential sale of the relevant shares, the applicant should be permitted to take steps to enforce its award elsewhere. In addition, it offered the undertaking which I have extracted at [36] above.
49 There is no doubt that the undertakings set out in Schedule A to the FCA example Freezing Order have their provenance in the English Practice Direction. This Practice Direction and, for that matter, its predecessors, contains in the Example Freezing Order forming part of the Practice Direction, par (10) in the following terms:
The Applicant will not without the permission of the court seek to enforce this order in any country outside England and Wales [or seek an order of a similar nature including orders conferring a charge or other security against the Respondent or the Respondent's assets].
50 However, as is the case in this Court, the English Practice Direction and the Example Freezing Order included therein which contains undertakings to be given by the applicant when seeking Mareva-type relief are meant to provide general guidelines to parties contemplating seeking Mareva-type relief. Those guidelines are not intended to be prescriptive nor are they intended to be applied rigidly without due regard being paid to the particular circumstances of the case at hand.
51 The observations made by Browne-Wilkinson VC which I have extracted at [45] above and which were relied upon by the respondents in the present case do not constitute a statement of principle. Rather, his Lordship's remarks were, as I understand them, intended to offer some explanation for requiring an applicant to give an undertaking in the terms of the undertaking set out in par (10) of the undertakings set out in the schedule to the English Example Freezing Order in circumstances where the application for Mareva-type relief is made before judgment and includes an application for world-wide Mareva relief. His Lordship was, I think, making the point that, if an applicant seeks and obtains from an English court a Mareva injunction which has world-wide operation, it should not be permitted to commence other proceedings in other jurisdictions claiming relief which replicates the relief already granted by the English court.
52 There are three features of the present case which distinguish it from the type of case which his Lordship had under consideration and which might generally engage the requirement to give an undertaking in the terms of par (10) of the undertakings set out in the schedule to the English Example Freezing Order.
53 The first distinguishing feature is that the applicant's claim in the present case is to enforce an award pursuant to s 8 of the International Arbitration Act 1974 (Cth) (IAA) which, of course, is intended to give effect to the Convention on the Recognition and the Enforcement of Foreign Arbitral Awards Adopted in 1958 by the United Nations Conference on International Commercial Arbitration at its Twenty-Fourth Meeting (the Convention). In the present case, as would be the case in all cases where an award creditor is seeking to enforce an arbitral award pursuant to the Convention, the relevant arbitral award was made in a jurisdiction other than Australia (here, in England) in circumstances where, from the moment the award was made, the applicant had an entitlement pursuant to the Convention to enforce that award in many countries. The idea that this Court should routinely impose an undertaking in the terms of par (7) of Schedule A to the FCA example Freezing Order is antipathetic to the principles embodied in the Convention and in s 8 of the IAA.
54 In my opinion, if freezing orders are sought in connection with an application by an award creditor to enforce a foreign arbitral award pursuant to s 8 of the IAA, this Court should not require the award creditor to provide an undertaking to the effect that it will not seek in any country outside Australia an order of a similar nature or an order conferring a charge over security against the award debtor or against the award debtor's assets. To require an award creditor to give such an undertaking would impose a constraint upon enforcement which is inconsistent with the award creditor's rights under the Convention.
55 Second, I think that the rationale for requiring the giving of such an undertaking in support of an application for Mareva-type relief prior to judgment (harassment of the respondent) disappears when the Mareva-type relief is given in aid of execution or in aid of enforcement of a judgment already given. This is the view expressed by Lawrence Collins in his work: Essays in International Litigation and the Conflict of Laws (Clarendon Press, Oxford, 1994) at 221. There, the learned author said:
Secondly, it is also very clear from the decisions that an order relating to foreign assets will more readily be granted if the order is made after judgment than before [See especially Babanaft [1900] Ch 13; Republic of Haiti [1990] 1 QB 202; Derby & Co Ltd v Weldon (Nos 3 and 4) [1900] Ch 65 (CA). In Babanaft it was held that Article 16(5) of the 1968 Convention (which gives exclusive jurisdiction to the courts of the Contracting State where judgment is to be enforced) did not preclude provisional measures affecting assets in other Contracting States as a prelude to execution in those States. This is clearly right: cf. Collins, Civil Jurisdiction and Judgments Act 1982 (1983) at p 83]. It should follow that there will be other differences in the exercise of the discretion after judgment. Thus after the plaintiff has obtained judgment, and is therefore ex hypothesi bound to recover if there are assets available (subject to any question of appeal), there is no reason in principle why he should have to give the usual cross-undertaking in damages, still less security for the cross-undertaking [Nor should a judgment debtor be entitled to 'Angel Bell' relief (Iraqi Ministry of Defence v Arcepey Shipping Co SA (The Angel Bell) [1981] QB 65) to pay his trade creditors out of the foreign assets]. This conclusion is obvious if there is no stay of execution pending appeal, and there seems to be no reason why, if there is a stay of execution (which is only given in exceptional circumstances [RSC Ord 59, r 13]), the judgment creditor should not be adequately and unconditionally protected. Nor, despite the view of Neill and Nicholls L JJ in Babanaft to the contrary, is there any reason in principle why, after judgment, a disclosure order (whether under RSC Order 48 or ancillary to the injunction) should be subject to an undertaking not to use the information without the consent of the court. The whole purpose of the order is to aid execution, and measures of execution at any rate should be permitted freely until the judgment is satisfied.
56 I agree with Mr Collins' views.
57 Third, in the present case, the Freezing Orders which I granted did not have world-wide operation. They did not attach to the respondents' foreign assets. For that reason, this Court never presumed to control or regulate enforcement of the award in other jurisdictions.
58 For all of the above reasons, I have concluded that the applicant should be released from that part of par (7) of Schedule A to the Freezing Orders made by me on 14 March 2013 from which it seeks to be released. I do not consider that there is any reason to require the applicant to give the fresh undertaking which it has proffered (as to which, see [36] above). However, I would expect that the applicant would inform the Court of the details of any recovery actually achieved in jurisdictions outside Australia so that, in managing the enforcement processes undertaken or to be undertaken here, double recovery in favour of the applicant is avoided.