APPLICABLE PRINCIPLES
153 The Trustees rely on the Court's power to make freezing orders under s 23 of the Federal Court Act and r 7.32 of the Rules. A freezing order operates in personam and not as an attachment to property: Cardile v LED Builders Pty Ltd [1999] HCA 18; 198 CLR 380 at [50].
154 Section 23 is a wide power. That said, orders must be framed so as to come within the limits set by the purpose which the order can properly be intended to serve: Jackson v Sterling Industries Ltd [1987] HCA 23; 162 CLR 612 at 625. Rule 7.32 explicitly states this requirement:
7.32 Freezing order
(1) The Court may make an order (a freezing order), with or without notice to a respondent, for the purpose of preventing the frustration or inhibition of the Court's process by seeking to meet a danger that a judgment or prospective judgment of the Court will be wholly or partly unsatisfied.
(2) A freezing order may be an order restraining a respondent from removing any assets located in or outside Australia or from disposing of, dealing with, or diminishing the value of, those assets.
155 Under r 7.33, the Court may make an ancillary order to a freezing order or a prospective freezing order, for the purpose of determining whether the freezing order should be made. A prospective freezing order is one which is "in prospect" in the sense that it is within the bounds of expectation that it will be made in the future: Royal Express Pty Ltd (Receivers and Managers Appointed) (Administrator Appointed) v Huang, in the matter of Royal Express Pty Ltd [2021] FCA 585 at [39] citing Parbery v QNI Metals Pty Ltd [2018] QSC 107; 358 ALR 88 at [68]. Whilst not made in relation to r 7.33, Bond J's summary of the authorities is nevertheless apposite: see Parbery at [70] citing Perdaman Chemicals & Fertilisers Pty Ltd v Griffin Coal Mining Company Pty Ltd [2011] WASC 188 at [151], [210]-[214]; BGC Australia Pty Ltd v Minspec Pty Ltd [2015] WASC 134 at [11]; JSC Mezhdunarodniy Promyshlenniy Bank v Pugachev [2015] EWCA Civ 139; 2 All ER (Comm) 816 at [50]-[52].
156 Rule 7.34 provides that the Court may make a freezing order against a person even if the person is not a party in a proceeding in which substantive relief is sought against the respondent.
157 The moulding of an interlocutory injunction must depend upon the circumstances of each case. As Brennan J observed in Jackson v Sterling Industries Ltd at 621:
A judicial power to make an interlocutory order in the nature of a Mareva injunction may be exercised according to the exigencies of the case and, the schemes which a debtor may devise for divesting himself of assets being legion, novelty of form is no objection to the validity of such an order.
158 The High Court recognised in Deputy Commissioner of Taxation v Huang [2021] HCA 43; 273 CLR 429 that rule 7.32, in Div 7.4 of the Rules, supplements s 23 of the Federal Court Act and the Federal Court's implied power as a superior court, each of which confers power upon the Court to make such orders as are appropriate for the proper exercise of its statutorily conferred jurisdiction and powers. That relationship is emphasised by r 7.36, which provides that nothing in Div 7.4 diminishes the inherent, implied or statutory jurisdiction of the Court to make a freezing order or ancillary order: Huang at [16] (Gageler, Keane, Gordon and Gleeson JJ) and [36] (Edelman J).
159 In Huang, the relevant freezing order was made against the defendant in the proceeding pursuant to r 7.32. The principal issue before the Court was whether the Federal Court's power to make freezing orders over assets outside of Australia was conditioned on or required proof that there be a realistic possibility of enforcement of a judgment debt in each foreign jurisdiction to which the freezing order related. Although Huang did not concern freezing orders against third parties, the following observation of the plurality is of broader relevance (at [17]-[18], footnotes incorporated):
The power conferred by r 7.32(1) is expressly subject to two limitations: first, the purpose of the order must be "the purpose of preventing the frustration or inhibition of the Court's process"; and secondly, the order must address that purpose "by seeking to meet a danger that a judgment or prospective judgment of the Court will be wholly or partly unsatisfied". The first limitation corresponds with the established scope of the Federal Court's general powers to grant a freezing order, being the power to make such orders as the Court may determine to be appropriate to prevent the abuse or frustration of its process in relation to matters coming within its jurisdiction. [Jackson v Sterling Industries Ltd (1987) 162 CLR 612 at 623; Patrick Stevedores Operations No 2 Pty Ltd v Maritime Union of Australia (1998) 195 CLR 1 at 32-33 [35]; Cardile v LED Builders Pty Ltd (1999) 198 CLR 380 at 399-401 [41]; Australian Broadcasting Corporation v Lenah Game Meats Pty Ltd (2001) 208 CLR 199 at 243 [94]; PT Bayan Resources TBK v BCBC Singapore Pte Ltd (2015) 258 CLR 1 at 18 [43]]. Rule 7.32 states explicitly the requirement, stated by this Court in relation to the Federal Court's general powers to grant a freezing order, that the power must be exercised for the purpose for which it is conferred [Patrick Stevedores Operations No 2 Pty Ltd v Maritime Union of Australia (1998) 195 CLR 1 at 32-33 [35]; Cardile v LED Builders Pty Ltd (1999) 198 CLR 380 at 399-401 [41]]. Where the order is made in proceedings in which substantive relief is sought against the defendant, that purpose is "to prevent a defendant from disposing of his actual assets (including claims and expectancies) so as to frustrate the process of the court by depriving the plaintiff of the fruits of any judgment obtained in the action" [Jackson v Sterling Industries Ltd (1987) 162 CLR 612 at 625]. More broadly, a freezing order is directed to dispositions "which are intended to frustrate, or have the necessary effect of frustrating, the plaintiff in his attempt to seek through the court a remedy for the obligation to which he claims the defendant is subject" [Riley McKay Pty Ltd v McKay [1982] 1 NSWLR 264 at 276].
The second limitation, that an order made under r 7.32 must serve the specified purpose "by seeking to meet a danger that a judgment or prospective judgment of the Court will be wholly or partly unsatisfied", also corresponds with the scope of the Federal Court's general powers to make a freezing order. Since Jackson v Sterling Industries Ltd, it has been accepted in Australia, as a general proposition, that a freezing order could be granted if the circumstances are such that there is a danger of the defendant absconding, or a danger of the assets being removed from the jurisdiction or disposed of within the jurisdiction, or otherwise dealt with so that there is a danger that the plaintiff, if successful in obtaining a judgment, will not be able to get it satisfied. [Jackson v Sterling Industries Ltd (1987) 162 CLR 612 at 623. See, eg, Patterson v BTR Engineering (Aust) Ltd (1989) 18 NSWLR 319 at 321-322]]. The danger must be sufficiently substantial to warrant the freezing order. [Patterson v BTR Engineering (Aust) Ltd (1989) 18 NSWLR 319 at 325]]. The need to identify a relevant danger was first articulated in Mareva Compania Naviera SA v International Bulkcarriers SA [[1975] 2 Lloyd's Rep 509 at 510], where Lord Denning MR stated:
"If it appears that the debt is due and owing - and there is a danger that the debtor may dispose of his assets so as to defeat it before judgment - the Court has jurisdiction in a proper case to grant an interlocutory judgment so as to prevent him disposing of those assets."
160 The plurality in Huang rejected an argument to the effect that r 7.32 is to be read as subject to r 7.35, which provides:
7.35 Order against judgment debtor or prospective judgment debtor or third party
(1) This rule applies if:
(a) judgment has been given in favour of an applicant by:
(i) the Court; or
(ii) for a judgment to which subrule (2) applies - another court; or
(b) an applicant has a good arguable case on an accrued or prospective cause of action that is justiciable in:
(i) the Court; or
(ii) for a cause of action to which subrule (3) applies - another court.
(2) This subrule applies to a judgment if there is a sufficient prospect that the judgment will be registered in or enforced by the Court.
(3) This subrule applies to a cause of action if:
(a) there is a sufficient prospect that the other court will give judgment in favour of the applicant; and
(b) there is a sufficient prospect that the judgment will be registered in or enforced by the Court.
(4) The Court may make a freezing order or an ancillary order or both against a judgment debtor or prospective judgment debtor if the Court is satisfied, having regard to all the circumstances, that there is a danger that a judgment or prospective judgment will be wholly or partly unsatisfied because any of the following might occur:
(a) the judgment debtor, prospective judgment debtor or another person absconds;
(b) the assets of the judgment debtor, prospective judgment debtor or another person are:
(i) removed from Australia or from a place inside or outside Australia; or
(ii) disposed of, dealt with or diminished in value.
(5) The Court may make a freezing order or an ancillary order or both against a person other than a judgment debtor or prospective judgment debtor (a third party) if the Court is satisfied, having regard to all the circumstances, that:
(a) there is a danger that a judgment or prospective judgment will be wholly or partly unsatisfied because:
(i) the third party holds or is using, or has exercised or is exercising, a power of disposition over assets (including claims and expectancies) of the judgment debtor or prospective judgment debtor; or
(ii) the third party is in possession of, or in a position of control or influence concerning, assets (including claims and expectancies) of the judgment debtor or prospective judgment debtor; or
(b) a process in the Court is or may ultimately be available to the applicant as a result of a judgment or prospective judgment, under which process the third party may be obliged to disgorge assets or contribute toward satisfying the judgment or prospective judgment.
(6) Nothing in this rule affects the power of the Court to make a freezing order or ancillary order if the Court considers it is in the interests of justice to do so.
161 The plurality said (at [21]):
Rule 7.35 is not expressed to affect the operation of r 7.32 and, contrary to Mr Huang's submission, there is no reason to read r 7.32 as subject to r 7.35. Both r 7.35(6) and r 7.36 are expressly to the contrary. Rather, r 7.35 extends the scope of r 7.32, including by confirming the rule's application to cases that may have otherwise been in doubt, namely where there is a "prospective" cause of action and in relation to processes of a foreign court. Where r 7.35 applies, r 7.35(4) supplements the power in r 7.32 by identifying reasons why the Court may be satisfied, having regard to all the circumstances, that a danger of the kind specified in both r 7.32 and r 7.35(4) exists.
162 The Trustees do not rely on r 7.35 in this Application. Nonetheless, as the plurality recognised at [22]:
As a practical matter, in most cases the danger required by r 7.32 will be proved because of one or more of the circumstances set out in r 7.35(4). However, r 7.35(4) does not cover the field. As already noted, both r 7.35(6) and r 7.36 explicitly contemplate that a freezing order may be made even though the applicant is unable to satisfy r 7.35(4). By way of example, r 7.32 may apply where a defendant deliberately and openly moves from Australia, leaving insufficient assets to satisfy a prospective judgment debt and stating an intention not to comply with the prospective judgment.
163 The practical interaction between the two rules is similarly reflected in the Court's Freezing Orders Practice Note (GPN-FRZG) which applies to any proceeding involving an application made in this Court for a freezing order. GPN-FRZG supplements Div 7.4 of the Rules. GPN-FRZG requires that an affidavit relied on in support of an application for a freezing or ancillary order should, if possible, address amongst other things, the matters referred to in r 7.35 (at para 2.20):
(a) information about the judgment that has been obtained, or, if no judgment has been obtained, the following information about the cause of action:
(i) the basis of the claim for substantive relief;
(ii) the amount of the claim; and
(iii) if the application is made without notice to the respondent, the applicant's knowledge of any possible defence;
(b) the nature and value of the respondent's assets, so far as they are known to the applicant, within and outside Australia;
(c) the matters referred to in r 7.35 of the Federal Court Rules; and
(d) the identity of any person, other than the respondent, who, the applicant believes, may be affected by the order, and how that person may be affected by it.
164 GPN-FRZG also relevantly states that:
(1) the purpose of a freezing order is to prevent frustration or abuse of the process of the Court, not to provide security in respect of a judgment or order (para 2.5);
(2) a freezing order should be viewed as an extraordinary interim remedy because it can restrict the right to deal with assets even before judgment, and is commonly granted without notice (para 2.6);
(3) r 7.35(5) addresses the minimum requirements that must ordinarily be satisfied on an application for a freezing order against a third party, who will not necessarily be a party to the substantive proceeding, before the discretion is enlivened (para 2.7); and
(4) the value of the assets covered by a freezing order should not exceed the likely maximum amount of the applicant's claim, including interest and costs, though sometimes it may not be possible to satisfy this principle if the amount is not known at the time of the discovery and at the time of the approach to the Court (para 2.11).
165 A freezing order may be made against a person who is not a party to proceedings where such an order is necessary to facilitate the administration of justice, subject to qualifications. Cardile concerned asset preservation orders against third parties in respect of the plaintiff's action against the defendant. The plurality in Cardile observed that in assessing whether relief is available against non-parties, the focus must be the administration of justice ([42]). The effective exercise of the jurisdiction may call for asset preservation orders against third parties who may hold or otherwise be interested in assets of the judgment debtor or potential judgment debtor or who may be obliged to contribute to the property of such a judgment debtor to help satisfy the judgment (plurality, at [44]). The plurality went on to describe the way in which a third party may relevantly "otherwise be interested in" the assets of the judgment debtor or potential judgment debtor. The plurality referred to a passage in the speech of Lord Mustill in Channel Tunnel Group Ltd v Balfour Beatty Construction Ltd [1993] AC 334 at 362, to which Hoffmann LJ referred in Mercantile Group (Europe) AG v Aiyela [1994] QB 366 at 375-376, where Lord Mustill said in respect of a third party (wife of a party) that the right to an interlocutory injunction which is incidental to, and dependent on, the enforcement of a substantive right usually, although not invariably, takes the shape of a cause of action (at [48]). In doing so, the plurality commented that (at [48]):
However, we do not think that his Lordship was suggesting that an order might be made against a non-party not amenable in some way ultimately to some coercive process requiring it to disgorge, or in some other way to participate in the satisfaction of, a judgment against a party.
166 The plurality cautioned that there is a temptation to use the term "flexible" to cloak a lack of analytical rigour and to escape the need to find a doctrinal and principled basis for orders that are made and concluded that the applicant for the freezing order against a third party had to establish a basis upon which recourse may be had to the third party to satisfy the applicant's prospective money judgment against the defendant (at [49]-[50]). As the plurality make plain there are significant differences between an order protective of the court's process set in train against a party to an action, including the efficacy of execution available to a judgment creditor, and an order extending to the property of persons who are not parties and who cannot be shown to have frustrated, actually or prospectively, the administration of justice (at [50]).
167 The plurality observed that even if the Court is satisfied as to the availability of proceedings and the risk of dissipation, the Court would not, as a matter of discretion, grant a freezing order if there has been no undertaking by the applicant to commence proceedings within a very short period of time (at [53]). Relevantly, the plurality observed at [53]-[54]:
Discretionary considerations generally also should carefully be weighed before an order is made. Has the applicant proceeded diligently and expeditiously? Has a money judgment been recovered in the proceedings? Are proceedings (for example civil conspiracy proceedings) available against the third party? Why, if some proceedings are available, have they not been taken? Why, if proceedings are available against the third party and have not been taken and the court is still minded to make a Mareva order, should not the grant of the relief be conditioned upon an undertaking by the applicant to commence, and ensure so far as is possible the expedition of, such proceedings? It is difficult to conceive of cases where such an undertaking would not be required. ...
.. we consider that the general proposition for which the appellants contend, that the grant of Mareva relief against a third party should be limited to cases in which the third party holds or is about to hold, dissipate or further dissipate property beneficially owned by the defendant in the substantive proceedings, is too narrowly expressed. Nevertheless, it will be a rare case in which Mareva relief will be granted if such a situation does not exist.
168 The plurality said that the availability of a proprietary remedy may, in some cases, be sufficient to constitute a substantive right in aid of which asset preservation relief in personam might lie (at [55]).
169 The plurality concluded (at [57], footnotes omitted):
What then is the principle to guide the courts in determining whether to grant Mareva relief in a case such as the present where the activities of third parties are the object sought to be restrained? In our opinion such an order may, and we emphasise the word "may", be appropriate, assuming the existence of other relevant criteria and discretionary factors, in circumstances in which:
(i) the third party holds, is using, or has exercised or is exercising a power of disposition over, or is otherwise in possession of, assets, including "claims and expectancies", of the judgment debtor or potential judgment debtor; or
(ii) some process, ultimately enforceable by the courts, is or may be available to the judgment creditor as a consequence of a judgment against that actual or potential judgment debtor, pursuant to which, whether by appointment of a liquidator, trustee in bankruptcy, receiver or otherwise, the third party may be obliged to disgorge property or otherwise contribute to the funds or property of the judgment debtor to help satisfy the judgment against the judgment debtor.
170 That the jurisdiction of the Court to make a freezing order is not limited to circumstances in which a substantive proceeding in the Court against a prospective judgment debtor has commenced or is imminent was reiterated by the High Court in PT Bayan Resources v BCBC Singapore [2015] HCA 36; 258 CLR 1 at [43] to [48] per French CJ, Kiefel, Bell, Gageler and Gordon JJ and at [64] per Keane and Nettle JJ. The Court emphasised that a freezing order is designed to protect "a prospective enforcement process": PT Bayan Resources at [46]. Indeed, the Court repeated the description of freezing orders used in earlier authorities as the paradigm example of an order to prevent the frustration of a court's process: PT Bayan Resources at [43] and the authorities cited therein. The plurality in PT Bayan Resources rejected a submission that the inherent jurisdiction of, in that case, the Supreme Court to make a freezing order is always limited to circumstances in which a substantive proceeding in that court has commenced or is imminent (at [44]). At [47] (footnotes omitted), the plurality said:
The actual holding in Cardile v LED Builders Pty Ltd illustrates that the prospective enforcement process that a court might protect by making a freezing order can be a process contingent on factors in addition to the outcome of a substantive proceeding in that court. The holding was that a freezing order can be made against a third party against whom no present cause of action exists and against whom no present proceeding has commenced. It is enough that some future legal process (which might be contingent, for example, on the appointment by another court of a liquidator or a trustee in bankruptcy) may be available pursuant to which the third party may be obliged to contribute to the funds of the judgment debtor to help satisfy the judgment against the judgment debtor.
171 The Respondents submit that there must be a legal framework comprising an accrued cause of action against which action can be taken in order to recover property or assets from the third party and r 7.32 needs to be read in that context. The Respondents submit that the plurality's summary at [47] in PT Bayan Resources elides the requirement that there be a "vested or accrued cause of action" before a freezing order will be made against the non-party. The Respondents point to the rejection by the plurality of a suggestion that freezing orders might be made against a third party who is not amenable to some coercive process requiring it to disgorge, or in some other way to participate in the satisfaction of, a judgment against a party: Cardile at [48]. The Respondents also draw attention to the observations of Kirby J, at [121], as to the grant of relief against a non-party as being preconditioned on having an entitlement to recourse to the non-party:
To secure an asset preservation order in a case such as the present, it will be necessary for the party seeking it to show, in addition to the conditions ordinary to the grant of relief injunctive in nature that (1) there is a danger that the non-party will dispose of relevant assets or property in its possession or under its control; and (2) that the affairs of the actual or potential judgment debtor and the non-party are closely intermingled, and that the actual or potential judgment creditor has a vested or accrued cause of action against the non-party or may otherwise become entitled to have recourse to the non-party, its property and assets to meet the claim. …
172 With respect, acknowledging the skill with which the submission was advanced, I do not accept the Respondents' submission that there must be a "vested or accrued cause of action" before a freezing order will be made against a third party. The plurality at [47] accurately and precisely summarised the application of the principles in the context of the orders ultimately made in Cardile. As recognised in Cardile at [25]-[26], the expression "as the Court thinks appropriate" in s 23 of the Federal Court Act points to the requirement to develop principles governing the exercise of the Court's power to ensure the power is exercised to serve the purpose for which it is given, namely to prevent the frustration or inhibition of the Court's process by seeking to meet a danger that a judgment or prospective judgment of the Court will be wholly or partly unsatisfied. The Respondents' proposed limitation is not necessary to facilitate or support the need identified by the plurality in Cardile as the touchstone for the development of principles applicable to the exercise of the jurisdiction in s 23 of the Federal Court Act.
173 I also regard the limitation for which the Respondents contend as inconsistent with the express acknowledgement by the plurality in Cardile that a freezing order may lie in at least two scenarios that do not necessarily entail the applicant establishing a vested or accrued cause of action. First, the plurality recognised that a freezing order may be granted in support of a proprietary remedy that may otherwise be available. Secondly, that a freezing order may be appropriate, assuming the existence of other relevant criteria and discretionary factors, in circumstances in which some process, ultimately enforceable by the courts, is or may be available to the judgment creditor as a consequence of a judgment against that actual or potential judgment debtor, pursuant to which, whether by appointment of a liquidator, trustee in bankruptcy, receiver or otherwise, the third party may be obliged to disgorge property or otherwise contribute to the funds or property of the judgment debtor to help satisfy the judgment against the judgment debtor (at [57]). In BCI Finances Pty Ltd (in liq) v Binetter (No 3) [2015] FCA 1336 at [31], Gleeson J noted that:
Several cases have accepted the proposition that a freezing order may be made against a third party company where there was a judgment debtor or prospective judgment debtor who might be bankrupted with the consequence that his or her trustee in bankruptcy would be likely to obtain access to the assets of the third party company: Caboche v Southern Equities Corporation Ltd [2001] SASC 55 at [23] (prospective judgment debtor), Davis v Turning Properties Pt Ltd [2005] NSWSC 742; (2005) 222 ALR 656 at [42] (prospective judgment debtor), Apostolidis v Kalenik [2011] VSCA 307; (2011) 35 VR 563 at [99] (judgment debtor), footnote 80, and Rafferty v Time 2000 West Pt Ltd (No 7) [2011] FCA 405 at [58] and [72] (judgment debtor).
174 To accept the limitation urged by the Respondents would also be inconsistent with the recognition that the power extends to a "prospective" cause of action: see Huang at [21], extracted at paragraph [161] above.
175 The making of a freezing order involves a discretionary exercise of power. The Court retains a discretion to refuse relief: Patterson v BTR Engineering (Aust) Ltd (1989) 18 NSWLR 319 at 321-322 (Gleeson CJ).