Jurisdiction of the Local Court in relation to s 73 of the Act
14 There is no doubt that if Solitare and the defendants in other proceedings wish to make an allegation of exclusive dealing under s 47 of the Act, this Court has exclusive jurisdiction in relation to such a claim. However, the position in relation to s 73 of the Act appears to me to be quite different. Section 73(1) of the Act relevantly provides:
73 Liability for loss or damage from breach of certain contracts
(1) Where:
(a) a corporation (in this section referred to as the supplier) supplies goods, or causes goods to be supplied, to a linked credit provider of the supplier and a consumer enters into a contract with the linked credit provider for the provision of credit in respect of the supply by way of sale, lease, hire or hirepurchase of the goods to the consumer; or
(b) a consumer enters into a contract with a linked credit provider of a corporation (in this section also referred to as the supplier) for the provision of credit in respect of the supply by the supplier of goods or services, or goods and services, to the consumer;
and the consumer suffers loss or damage as a result of misrepresentation, breach of contract, or failure of consideration in relation to the contract, or as a result of a breach of a condition that is implied in the contract by virtue of section 70, 71 or 72 or of a warranty that is implied in the contract by virtue of section 74 of this Act or section 12ED of the Australian Securities and Investments Commission Act 2001, the supplier and the linked credit provider are, subject to this section, jointly and severally liable to the consumer for the amount of the loss or damage, and the consumer may recover that amount by action in accordance with this section in a court of competent jurisdiction.
15 A 'linked credit provider' is defined in s 73(14) in the following terms:
linked credit provider, in relation to a supplier, means a credit provider:
(a) with whom the supplier has a contract, arrangement or understanding relating to:
(i) the supply to the supplier of goods in which the supplier deals;
(ii) the business carried on by the supplier of supplying goods or services; or
(iii) the provision to persons to whom goods or services are supplied by the supplier of credit in respect of payment for those goods or services;
(b) to whom the supplier, by arrangement with the credit provider, regularly refers persons for the purpose of obtaining credit;
(c) whose forms of contract or forms of application or offers for credit are, by arrangement with the credit provider, made available to persons by the supplier; or
(d) with whom the supplier has a contract, arrangement or understanding under which contracts or applications or offers for credit from the credit provider may be signed by persons at premises of the supplier.
16 Section 73(3) of the Act sets out the circumstances in which a linked credit provider is not liable under s 73(1). It relevantly provides:
(3) A linked credit provider of a particular supplier is not liable to a consumer by virtue of subsection (1) in proceedings arising under that subsection if the credit provider establishes:
(a) that the credit provided by the credit provider to the consumer was the result of an approach made to the credit provider by the consumer that was not induced by the supplier;
(b) where the proceedings relate to the supply by way of lease, hire or hirepurchase of goods by the linked credit provider to the consumer, that:
(i) after due inquiry before becoming a linked credit provider of the supplier, the credit provider was satisfied that the reputation of the supplier in respect of the supplier's financial standing and business conduct was good; and
(ii) after becoming a linked credit provider of the supplier, the credit provider had not had cause to suspect that:
(A) the consumer might be entitled to recover an amount of loss or damage suffered as a result of misrepresentation or breach of a condition or warranty referred to in subsection (1); and
(B) the supplier might be unable to meet the supplier's liabilities as and when they fall due…
17 Sections 73(4) to (7) of the Act set out the manner in which a consumer may raise a claim under s 73(1). Of particular relevance is s 73(4), which provides:
(4) Subject to subsection (5), in any proceedings in relation to a contract referred to in paragraph (1)(a) or (b) in which a credit provider claims damages or an amount of money from a consumer, the consumer may set up the liability of the credit provider under subsection (1) in diminution or extinction of the consumer's liability.
18 Jurisdiction is expressly conferred on the various courts by s 86 of the Act, which relevantly provides:
(2) The several courts of the States are invested with federal jurisdiction within the limits of their several jurisdictions, whether those limits are as to locality, subject-matter or otherwise, and, subject to the Constitution, jurisdiction is conferred on the several courts of the Territories, with respect to any matter arising under Part IVA or IVB or Division 1, 1A or 1AA of Part V in respect of which a civil proceeding is instituted by a person other than the Minister or the Commission.
(3) Nothing in subsection (2) shall be taken to enable an inferior court of a State or Territory to grant a remedy other than a remedy of a kind that the court is able to grant under the law of that State or Territory.
[Emphasis added]
19 Section 73 is found in Division 2 of Part V of the Act, which, as can be seen above, is not expressly referred to in s 86. This is the basis for the argument that the jurisdiction of the Federal Court in this regard is exclusive and, as such, a claim under s 73 of the Act cannot be brought in the Local Court. The alternative argument identified before me was that the limitation on jurisdiction in s 86(2) (identified in bold above) applies only to Territory Courts.
20 I am not persuaded by this alternative argument. From a practical perspective, it has the result that the jurisdiction of the State courts under the Act is unlimited, subject only to the qualification imposed by sub-section (3). In contrast, the courts of the Northern Territory and the Australian Capital Territory would only have jurisdiction in relation to the portions of the Act expressly referred to in s 86(2). This would be an odd result and one which I do not think could have been intended. I agree with the construction of s 86(2) adopted by Cowdroy J in Champion Truck Bodies Pty Limited v Capital Finance Australia Limited [2010] FCA 332 at [9] that s 86(2) confers jurisdiction on the Local Court with respect to matters arising under Parts IVA or IVB or Division 1, 1A and 1AA of Part V of the Act, where such matters were not instituted by the Minister or the ACCC and subject to the qualification imposed by sub-section (3). A similar view was also expressed by the Full Court in Western Australia v Wardley Australia Ltd (1991) 102 ALR 213 in relation to s 86(2) as it then stood. The Court stated at 225:
Pursuant to s 86(2) of the Act, State courts are invested with jurisdiction with respect to any "matter" arising under Div 1 or 1A of Pt V of the Act in respect of which a civil proceeding is instituted by a person other than the Minister or the Commission.
21 The question of the Local Court's jurisdiction in relation to s 73 was touched upon by Cowdroy J in Champion Truck Bodies in the course of determining whether to transfer proceedings under s 86A(4). It was not necessary for his Honour to determine whether the Local Court had jurisdiction in relation to s 73. Nevertheless, his Honour stated at [13]:
…it is important to characterise correctly the legislative effect of s 73 of the TP Act. Section 73 renders a supplier and linked credit provider jointly and severally liable for a consumer's loss when the loss was the result of a misrepresentation, breach of contract, or failure of consideration in relation to the contract or where there is a breach of a term implied by ss 70, 71 or 72 or of a warranty that is implied in a contract by virtue of s 74 of the TP Act or s 12ED of the Australian Securities and Investments Commission Act 2001 (Cth). Section 73 neither invests jurisdiction nor does it create a contravention of the TP Act.
22 During argument I was referred to two decisions in which State courts had considered claims arising under s 73. The first was Business & Professional Leasing Pty Ltd v Dannawi; BPL (NSW) Pty Ltd v Blue Robe Petroleum Pty Ltd; BPL (NSW) Pty Ltd v Macarounas [2008] NSWSC 902 (Dannawi). That case related to the leasing of pizza ovens by the plaintiff as financier and lessor to the defendants in circumstances where the supplier had falsely represented that there was a 6 month free trial period. Section 73 was raised by the defendants by way of defence. Young CJ in Eq (as he then was) did not expressly address whether or not the Supreme Court had jurisdiction in relation to s 73 in his reasons. However, his Honour concluded that s 73 did not provide a defence for the defendant's failure to make the rental payments, nor did it authorise the making of an order rescinding the rental agreements as a consequence of the misrepresentations. Rather, his Honour held that s 73 permitted the linked credit provider to be liable, by way of set-off, for the loss or damage suffered by the consumer in relation to the contract with the credit provider (at [185]-[186]).
23 The second case I was referred to was Landy DFK Finance v Rasaratnam (2000) Aust Contract R 90-117. Balmford J upheld a decision of a Magistrate that the respondent could rely on s 73 of the Act to set off the amount the respondent owed under a finance agreement against the liability of the appellant (who was the assignee of the tied loan contract) in relation to a failure of consideration. In doing so, his Honour held that the purpose of s 73 is "the protection of the purchaser in a case where the supplier of the goods or services and the provider of finance are associated" (at [17]). As such, s 73 continued to operate even where the linked credit provider had assigned its rights. His Honour held that "[t]he assignee of a tied loan contract must take that contract subject to the rights of the debtor under s 73" (at [17]). As in Dannawi, there is no mention in the decision of any concern that the Magistrates' Court might not have jurisdiction in relation to s 73.
24 The characterisation of the effect of s 73 by Young CJ in Eq in Dannawi is consistent with the observation of Cowdroy J in Champion Truck Bodies (at [13]) that it neither invests jurisdiction nor creates a contravention of the Act. This is also consistent with the reference in Landy to s 73 conferring a "right" upon a defaulting debtor in particular circumstances, and the conclusion of the Full Court in Wardley that "[s]ection 73(1) and (2) creates both right and remedy" (at 221). Similarly, it also accords with the commentary in Heydon, Trade Practices Law, at [16.900], in which it is said that s 73(1):
…is expressed to confer a remedy on a consumer in one of two alternative sets of circumstances in which a consumer and a linked credit provider have entered a contract…The consumer is given a cause of action if, in either case, the consumer suffers loss or damage from misrepresentation…
This is reiterated at [16.950] in relation to s 73(4), which states:
Section 73(4) creates a right of set-off in favour of the consumer. In any proceedings in relation to a contract referred to in s 73(1)(a) or (b) in which a credit provider claims damages or an amount of money from a consumer, a consumer may set up the liability of the credit provider under s 73(1) in diminution or extinction of the consumer's liability.
25 This is also consistent with the purpose of both the Act generally and s 73 in particular, insofar as it seeks to protect consumers against the insolvency of suppliers. The original s 73 was repealed and replaced in full in 1986. The Explanatory Memorandum to the Trade Practices Revision Bill 1986 relevantly stated (at [143]-[145]):
143. However, in some cases the credit provider must carry some fault. If he has an arrangement with the supplier to provide credit in respect of purchase from the supplier, he is aiding the supplier's business. He is then in a better position to know of the solvency of the supplier and depending on the connection he may be able to exercise some control over the supplier's business conduct.
144. Under the credit legislation recently introduced in New South Wales, Victoria, Western Australia and the Australian Capital Territory, where a credit provider who is linked to the supplier provides credit to a consumer in respect of a purchase from the supplier, the credit provider and the supplier are liable jointly and severally for any breach of the contract of sale, misrepresentation or failure of consideration.
145. The existing s 73 is being repealed and replaced with a section modelled on and consistent with the linked credit provider provisions in the State Credit Legislation…
26 The phrase "court of competent jurisdiction" which appears in s 73(1) has been interpreted in a variety of other contexts. In R v Ward (1978) 140 CLR 584, the High Court held that the use of this phrase in s 273 of the Bankruptcy Act 1966 (Cth) was not a reference to the courts upon which jurisdiction was specifically conferred under s 27 of that Act, but rather was "apt to signify a court which is otherwise endowed with jurisdiction, as for example by the provisions of the Judiciary Act" (at 588-589). In Johnstone v Commonwealth (1979) 143 CLR 398, Jacobs J held that in the context of s 56 of the Judiciary Act 1903 (Cth), the phrase refers to "competency in respect of amount and subject matter and personality of the plaintiff" (at 404). Similarly, in Stack v Coast Securities (No. 9) Pty Ltd (1983) 154 CLR 261 it was held by Gibbs CJ (at 277), in relation to the use of the phrase in Division 2A of Part V of the Act (as it then was), that the phrase was:
…obviously not intended to be synonymous with "the Court", which as I have said means the Federal Court, and must therefore refer to (or at least include) State courts invested with jurisdiction under s 39(2) of the Judiciary Act".
27 In my view the use of the phrase "court of competent jurisdiction" in s 73(1) is not simply a reference to a court upon which jurisdiction has been conferred under s 86 of the Act. Rather, it is a reference to any court which has jurisdiction to hear claims where the loss or damage suffered by the consumer is caused by misrepresentation, breach of contract, failure of consideration, breach of the warranties implied by ss 70, 71, 72 or 74 of the Act or s 12ED of the ASIC Act and subject to such other jurisdictional limits that may exist. If a consumer makes a claim in respect of such a matter in the Local Court then, subject to the matter being otherwise within its jurisdiction, the Local Court will be able to give effect to s 73 as may be appropriate in the circumstances of the case.