See also Reid v Howard [1995] HCA 40; (1995) 184 CLR 1 at 16-17; and Director of Public Prosecutions v Shirvanian (1998) 44 NSWLR 129 at 132-133, 136, 155-156.
62 Grassby and Cardile v LED Builders predate the Civil Procedure Act. The Civil Procedure Act, by s 90(1), now confers on each court to which it applies the power to make orders as the nature of the case requires, "at or after trial or otherwise as the nature of the case requires". The Civil Procedure Act, s 90(1) replicates the former Supreme Court Act 1970, s 91. There was no similar provision in the District Court Act , although the former Supreme Court Act, s 91, provided that the court's orders were final. The Federal Court of Australia Act, s 23 is in similar, although not identical terms, to the Supreme Court Act, s 91 and the Civil Procedure Act, s 90(1). It is important, however, to understand that in Cardile v LED Builders, the plurality judgment stated that the power of the Court to make an order against a third party was encompassed in s 23. It is apparent that the jurisdiction to do so was founded in its position as a superior court. This is apparent from the reference at [56] of the plurality judgment to the general powers of superior courts comprehended by the Federal Court of Australia Act, s 23 and by their Honours reference to Grassby, at [26], in respect of the implied powers of inferior courts.
63 Notwithstanding that the Civil Procedure Act, s 90(1) now applies to the District Court, that Court nonetheless remains an inferior court. Its jurisdiction is to be found in statute. Given the operation of the Civil Procedure Act, s 5(2), s 90(1) does not operate to extend that jurisdiction. Accordingly, in this case, the jurisdiction to make an order against a third party, if such an order can be made, remains founded in the District Court's enforcement jurisdiction. What powers does the District Court have in respect of that jurisdiction? Pursuant to s 90, it has the power to make orders as the case may require. However, such orders must be made in the exercise of the Court's express or implied powers. As I have said, there is no express power. However, I can see no reason why a freezing order could not be made against a third party in the District Court pursuant to an implied power empowering it to do so. As Dawson J observed in Grassby at [21]-[23] (extracted at [61] above), the implied powers of an inferior court can operate to serve similar functions to those served by the inherent powers exercised by a superior court. Such powers are only possessed as a matter of necessary implication.
64 In Pelechowski, there was no express power to make an asset preservation order after action in the court. However, the Court held that an inferior court had an implied power to make such order. I see no difference in principle in there being an implied power to make an order where there is evidence that a judgment debtor has taken steps to alienate property to a third party, when that property would otherwise have been available for execution at the instance of the judgment creditor. Any such order could only be made in accordance with the principles in Cardile v LED Builders.
65 I have not, up to this point, given consideration to the operation of UCPR, r 25.14(6) (the terms of which are set at [40] above). UCPR, r 25.14(6) provides that nothing in UCPR, r 25.14 affects the power of the court to make, relevantly, a freezing order, if the court considers it is in the interests of justice to do so. It is to be immediately noted that r 25.14(6) does not provide a power to make a freezing order. Rather, its effect, or operation, is predicated upon there being a power to make such an order and otherwise informs that UCPR, r 25.14 is not the exclusive source of power to do so. The court's power to make an order if the court considers that it is in the interests of justice to do so, must be construed in the context of such power as the court has. As I have explained above, I consider that that power is an implied power, and must be exercised within the constraints discussed in Cardile v LED Builders.
66 It follows, in my opinion, that the challenge to jurisdiction and power to make a restraining or freezing order against a third party fails.
67 One final matter should be noted about the terms of a restraining order or freezing order, whether in respect of the assets of a party to proceedings, or a third party. In the normal course such an order should be made for a limited period, delimited either by a date or event or subject to a condition, such as the bringing of an application under the Conveyancing Act, s 37A, or under the Bankruptcy Act, s 121: see Cardile v LED Builders, at [76], discussed at [47] above. The Court did not impose any such condition in this case, although subsequently the respondent commenced proceedings both in the Supreme Court under the Conveyancing Act, s 37A and in the Federal Court, seeking, inter alia, an order pursuant to the Bankruptcy Act, s 178 of requiring the trustee to do all things necessary to commence proceedings pursuant to the Bankruptcy Act, ss 120, 121 or 122, and/or the Conveyancing Act, s 37A. Given that Graeme Tagget is bankrupt, it is likely that the Supreme Court proceedings are no longer maintainable: see Green v Schneller [2002] NSWSC 671; 29 Fam LR 346 per Barrett J. I will refer to the relevance of these matters later.