The Trade Practices Act
12 There was no dispute as to the correct construction and application of the provisions of the Trade Practices Act 1974 (Cth) relevant to the present proceeding. The occasion thus does not arise to do anything other than to note in outline the relevant statutory provisions.
13 The provision set forth in the Application in the Federal Magistrates Court as having been contravened is s 53B. That section provides as follows:
Misleading conduct in relation to employment
A corporation shall not, in relation to employment that is to be, or may be, offered by the corporation or by another person, engage in conduct that is liable to mislead persons seeking the employment as to the availability, nature, terms or conditions of, or any other matter relating to, the employment.
As the section itself makes clear, it only relates to conduct which occurs before a contract of employment arises: Wright v TNT Management Pty Ltd (1989) 15 NSWLR 679 at 691 to 692 per McHugh JA. By way of example, in Dawson v Australian Consolidated Reserves Pty Ltd (1983) ATPR 40-374 the company had pleaded guilty to a contravention of s 53B. The company had published in a newspaper an advertisement which included a statement that "A Girl Friday" was sought with an initial salary of $260 per week. The plea of guilty accepted that there was no vacancy for which any successful applicant would receive an initial wage of $260 per week. The advertisement also failed to disclose that what the company was seeking was someone to operate as its agent, to be remunerated by commissions earned on sales made of certain goods the company was handling. A contravention was made out and fines were imposed.
14 Subsequently, in Walker v Salomon Smith Barney Securities Pty Ltd [2003] FCA 1099, 140 IR 433 Kenny J set out the text of s 53B and continued:
[186] ….. In order to make out his case under s 53B, Mr Walker needed to establish (1) that each representation was made; (2) that, viewed objectively, the representation was liable to mislead him as to the availability, nature, terms or conditions, or another matter relating to the employment proposed by NatWest; and (3) that he relied on the representation. As in connection with s 52 of the TPA, in order to be compensated for any loss and damage under s 82(1) of the TPA, Mr Walker needed to establish a causal connection between the respondents' conduct and the loss for which he sought compensation.
[187] Section 53B prohibits a corporation from engaging in misleading and deceptive conduct in relation to an offer of employment before a contract of employment has been entered into. The misrepresentation must induce the applicant to take up employment with the respondent: see Callinan v Gilro-ERG Pty Ltd. The provision is limited to conduct that took place prior to the commencement of the employment: see Wright v TNT Management Australia Pty Ltd (t/a Comet Overnight Transport) (1989) 15 NSWLR 679, at 691-692, per McHugh JA and 696 per Clarke JA; Dawson v Australian Consolidated Reserves Pty Ltd [1983] ATPR 44,441 (40-374) per Toohey J; and Thomas v Star Maid International Pty Ltd [1999] FCA 911 at [16] per Weinberg J. [emphasis in original]
15 The representation relied upon by Mr Robertson in the present proceeding was a representation made as to the length of time for which he would be employed. It was common ground that this was a representation as to a "future matter" and that s 51A was thereby invoked. That section provides as follows:
Interpretation
(1) For the purposes of this Division, where a corporation makes a representation with respect to any future matter (including the doing of, or the refusing to do, any act) and the corporation does not have reasonable grounds for making the representation, the representation shall be taken to be misleading.
(2) For the purposes of the application of subsection (1) in relation to a proceeding concerning a representation made by a corporation with respect to any future matter, the corporation shall, unless it adduces evidence to the contrary, be deemed not to have had reasonable grounds for making the representation.
(3) Subsection (1) shall be deemed not to limit by implication the meaning of a reference in this Division to a misleading representation, a representation that is misleading in a material particular or conduct that is misleading or is likely or liable to mislead.
16 The section has been recognised as "a qualified and complex deeming provision": Ackers v Austcorp International Ltd [2009] FCA 432 at [354] per Rares J. It is, however, properly characterised as an interpretation provision and "does not of itself create a cause of action, nor define a norm of conduct": Ting v Blanche (1993) 118 ALR 543 at 552. Notwithstanding some divergence of views as to the manner of operation of s 51A(2) (see: Readymix Holdings International Pte Ltd v Wieland Process Equipment Pty Ltd (No 2) [2008] FCA 1480 at [91] to [99]), it is considered that s 51A is to be interpreted and applied in the manner explained by Emmett and Allsop JJ in McGrath v Australian Naturalcare Products Pty Ltd [2008] FCAFC 2, 165 FCR 230. Emmett J there observed:
[44] Under s 51A(1) of the Trade Practices Act, a representation is to be taken to be misleading if it is a representation with respect to any future matter and the maker of the representation does not have reasonable grounds for making the representation. Under s 51A(2), the maker of the representation with respect to any future matter is to be deemed not to have had reasonable grounds for making the representation unless it adduces evidence to the contrary. However, if evidence is adduced by a representor to the effect that the representor had reasonable grounds for making the representation, the deeming provision will not operate. Where the representor adduces such evidence, it is then a matter for the Court to determine, on the balance of probabilities in the ordinary way, whether or not the representor had reasonable grounds for making the representation.
Allsop J (as His Honour then was) said:
[192] … Section 51A(2) does not, in my view, mean that in those circumstances the representor has not met an onus. The section does not cast the legal or persuasive onus, in such a case, on the representor. Its terms do not say so. The enactment history makes clear that the terms were deliberately chosen not to say so. Keane JA, despite his reference to the "trend of established [first instance] authority", does not say so. In my respectful view, to the extent that decisions such as IMB Group (1999) ATPR 41-704; Blacker [2000] FCA 681; Kaye [2004] FCA 1363; Lewarne [2007] FCA 1136 and Emerald Ocean [2006] ATPR 42-096 say, or may be taken as saying, that the legal or persuasive onus of proof is shifted to the representor by s 51A(2), they are wrong. None examined the enactment history of s 51A. If it be thought, contrary to my reading of Keane JA's reasons, that his Honour's reference to Kaye [2004] FCA 1363 as "established authority" was a conclusion that s 51A(2) effected a reversal of the legal and persuasive onus of proof, I would be driven to the respectful view that his Honour was plainly wrong for the reasons that I have given.
Emmett J also agreed with Allsop J as to the operation of s 51A: [2008] FCAFC 2 at [6], 165 FCR 230 at 234.
17 Difficulties may emerge as to the application of s 51A in those cases where a person making a representation simply denies making the statements sought to be attributed to him. Although addressing the comparable terms of s 41 of the Fair Trading Act 1987 (NSW), in Cummings v Lewis (1993) 41 FCR 559 at 565 to 566 Sheppard and Neaves JJ observed:
That problem is compounded when one takes into account subs (2) of s 41 which casts the onus of establishing that a person had reasonable grounds for making a representation with respect to a future matter on to the person making it. No evidence was given by Mr Leckie or Mr Lewis in relation to the matter at hand. Neither dealt with the question whether he had reasonable grounds for saying what his Honour has found each said. There is of course good reason for this. They denied that any such representations were made.
That raises a practical difficulty about the application of subs (2) of s 41 to some cases. There are many cases, whether under s 52 of the Trade Practices Act or s 42 of the Fair Trading Act, where the principal protagonists are not dishonest or fraudulent. Each gives evidence to the best of his or her ability of conversations which took place before a transaction was entered into or other steps were taken. One party alleges inducement by misleading or deceptive conduct. The other party denies it because he or she says that nothing of that kind was said. That evidence is given honestly and to the best of the witness's recollection. Yet so often a judge will find that party's evidence unreliable, but it will be rejected, not because it is dishonest but because it is mistaken. The question arises how, from a practical point of view, can a witness in that situation face up to what is to him or her a false position. Evidence needs to be given to show reasonable grounds for the making of a statement that the witness claims never to have made. That was the position both Mr Leckie and Mr Lewis would have been placed in if an attempt had been made to elicit evidence of reasonable grounds from them.
Evidence of reasonable grounds may be established by evidence other than that of the persons who are alleged to have made particular representations as to a future matter. Indeed, as in so many other areas, a court may find the overall probabilities to which the circumstances of a given case give rise, the background to it and the conduct of parties prior to conversations taking place as providing better guides to whether or not they had particular states of mind or whether particular factors existed which would establish evidence of something such as reasonable grounds. It was the overall circumstances of the case which enabled his Honour to say, in relation to both Mr Leckie and Mr Lewis, that each genuinely believed the encouraging assertions which his Honour found them to have made. If one changes the exercise to an inquiry, not into genuine or honest belief, but into whether there were reasonable grounds, it is again the overall circumstances of the case which will provide more reliable guidance than would oral evidence on the part of interested parties.
In reliance upon this provision, in King v GIO Australia Holdings Ltd [2001] FCA 308 at [31], 184 ALR 98 at 111, Moore J observed that "it can sometimes be somewhat artificial to focus on who may adduce the evidence".
18 An equally brief reference should also be made to s 82 of the Trade Practices Act. Section 82(1) relevantly provides in part as follows:
… a person who suffers loss or damage by conduct of another person that was done in contravention of a provision of Part … V … may recover the amount of the loss or damage by action against that other person or against any person involved in the contravention.
In order to obtain relief under s 82, a person must have suffered loss or damage "by" conduct in contravention of (relevantly) Pt V: Wardley Australia Ltd v State of Western Australia (1992) 175 CLR 514. Mason CJ, Dawson, Gaudron and McHugh JJ there observed at 525:
…The statutory cause of action arises when the plaintiff suffers loss or damage "by" contravening conduct of another person. "By" is a curious word to use. One might have expected "by means of", "by reason of", "in consequence of" or "as a result of". But the word clearly expresses the notion of causation without defining or elucidating it. In this situation, s. 82(1) should be understood as taking up the common law practical or common-sense concept of causation recently discussed by this court in March v. Stramare (E. & M. H.) Pty. Ltd. [(1991) 171 CLR 506], except in so far as that concept is modified or supplemented expressly or impliedly by the provisions of the Act. Had Parliament intended to say something else, it would have been natural and easy to have said so.
Thereafter, in Henville v Walker [2001] HCA 52, 206 CLR 459, McHugh J (Gummow J agreeing) referred to these observations and continued:
[96] But this does not mean that common law conceptions of causation should be rigidly applied without regard to the terms or objects of the Act. Section 82 now applies to the contravention of any provision of Pt IV, IVB or V, or s 51AC of the Act. In Marks v GIO Australia Holdings Ltd, Hayne and Callinan JJ and I pointed out that the section can apply to many different kinds of cases, not just those where a breach of s 52 is alleged. Moreover, the objects of the Act indicate that a court should strive to apply s 82 in a way that promotes competition and fair trading and protects consumers. The width of the potential application of s 82 and the objects of the Act tell against a narrow, inflexible construction of the section. No doubt in most cases, applying common law conceptions of causation will be sufficient to answer the issues posed by s 82 in its application to contraventions of the Act. But care must be taken to avoid a mechanical application of those conceptions to issues arising under the section. … [footnotes omitted]
His Honour thereafter continued to state:
[136] Given the long history of the common law's recognition of the concept of remoteness in assessing damages in contract and tort and its relationship with the issue of causation, it seems proper to read the term "by" in s 82 as including the concept of remoteness. By remoteness, I mean that the loss or damage was not reasonably foreseeable even in a general way by the contravener. …
[140] Nothing in the common law, in s 52 or s 82 or in the policy of the Act supports the conclusion that a claimant's damages under s 82 should be reduced because the loss or damage could have been avoided by the exercise of reasonable care on the claimant's part. There is no ground for reading into s 82 doctrines of contributory negligence and apportionment of damages. No doubt, if part of the loss or damage would not have occurred but for the unreasonable conduct of the claimant, it will be appropriate in assessing damages under s 82 to apply notions of reasonableness in assessing how much of the loss was caused by the contravention of the Act. But that proposition is concerned with the items that go to the computation of the loss. … [footnotes omitted]
19 The misrepresentation thus need not be the sole cause of an applicant's loss or damage. See also: I & L Securities Pty Limited v HTW Valuers (Brisbane) Pty Ltd [2002] HCA 41 at [25] to [26], 210 CLR 109 at 119 per Gleeson CJ.