The Use Of Sealing And Gagging Relief In Complex Insolvency Proceedings Involving The Investigation Of Fraud And Discovery Of Hidden Assets
Fraud and insolvency can be vexing. However, there are a number
of tools available to an insolvency professional who is faced with
an insolvent estate that has been made the victim of grand
malfeasance or fraud. In the context of such an insolvency, the
discovery and preservation of concealed assets linked to an estate
is the focal point of the entire process. In general terms a
Liquidator (or other insolvency officeholder) is vested with broad
powers that can be exercised towards the achievement of that
objective. The focus of this paper is on the use of certain
extraordinary ex-parte measures to locate the fructus
sceleris (the fruits of fraud) optimally. The concealed asset
discovery remedies described in this paper are available in most
British Commonwealth jurisdictions and in some jurisdictions in the
United States.
This paper considers ex-parte relief in the context of
the appointment of a provisional Liquidator, and also assumes that
the insolvency in question is one that involves a number of
jurisdictions. This article emphasizes the use of 'gagging'
and 'sealing' relief1 in support of
multi-jurisdictional asset location investigations. While some
reference to Norwich Pharmacal/Bankers Trust document
discovery and asset Freezing Orders must of necessity be included,
an in depth discussion of such reliefs2 is beyond the
scope of this article. 'Following' or 'tracing'
misappropriated value down multiple paths of transactions or
transfers, cannot usually be accomplished effectively in the
absence of the protection of utmost secrecy surrounding the
investigation. Sealing and gagging orders are, in effect,
judicially imposed secrecy orders. They require the Court's
staff to prohibit public access to the Court's record of the
proceeding involved. This is the "Sealing Order." A gag
on the other hand is an injunction imposed on any person with
knowledge of either 'sealed' proceedings generally or,
sometimes more specifically, an order compelling the disclosure of
confidential documents, from tipping-off any third party of the
same. It is thus sometimes also referred to as an 'anti-tip-off
Order.'
The starting point in any analysis of the means available to a
Liquidator to achieve the objectives of the appointment is the
Order appointing the Liquidator. Thus the drafting of the initial
Order appointing the Liquidator is of paramount importance.
Thoughtful drafting can ensure that the Order can encompass a broad
scope of powers or entitlements that may not have originally been
contemplated. However, caution is also appropriate at this time,
given that in the multi-jurisdictional context the foreign
officeholder will of necessity require recognition in a foreign
jurisdiction before he can hope to exercise any powers there. As
the reader will no doubt be aware-recognition by a foreign Court is
predicated upon acceptance of the powers bestowed in the initial
appointing document.3
It is a general principle of the English common law that the
dissolution or liquidation of a company by an order of a court
located in its place of incorporation will be recognised by an
English Court.4 This general rule of the common law is
subject to the proviso that the appointment of the Liquidator in
question is not contrary to English public policy, and in
particular that such has not been procured by fraud. This
traditional principle is also now the subject of significant change
through the relatively recent introduction of the concept of a
company's 'centre of main interests' – or its
C.O.M.I. – both within the EU and in jurisdictions which
have adopted the UNCITRAL Model Law on Cross-Border Insolvency
(1997). In addition, where the Order appointing a Liquidator
contains provisions enabling him to act in ways that would be
considered outside the scope of a Liquidator's powers in a
foreign jurisdiction, the foreign Court is unlikely to recognise
the appointment absent appropriate concessions or
acknowledgements.
Given the focus of this paper one of the most important
considerations in seeking the assistance of a foreign Court, is
whether the jurisdiction of that Court facilitates Liquidators by
making available ex-parte procedures designed to uncover
information under the protection of ancillary secrecy orders
– such as sealing or gagging injunctions. If the actual
insolvency code or body of legislation involved does not
specifically provide for the use of ex-parte investigative
procedures by a Liquidator or other such official, recourse may
– in most in Anglo American jurisdictions – be
had to the rules of civil procedure. Most common law Courts have
jurisdiction to hear a variety of applications without notice, and
in general one can appeal to the inherent jurisdiction of a Court
to do as it sees fit to ensure that the ends of justice are met. In
general it may be said that the common law jurisdictions,
including, for instance, the United States, England & Wales and
Australia, provide for broad reliefs in such context.5
In contrast, civil law jurisdictions in general do not countenance
such relief. However, in the intellectual property context, E.U.
Directive 2004/48/EC is to change that stance. Under this
Directive, the basic principles of the Norwich
Pharmacal/Bankers Trust document disclosure
jurisdiction6 are ostensibly to be implemented into the
national law of the member states of the European Union regardless
of whether they belong to the Anglo-Saxon or the Civil Law legal
traditions. The Directive has been widely criticized given its
introduction of hitherto common law centric draconian measures.
This is arguably one of the reasons that its implementation
throughout the EU is well beyond schedule. As of January 1, 2008
the Directive will be implemented in German law such that the third
party, Norwich Pharmacal/Bankers Trust document disclosure
jurisdiction in respect of intellectual property matters is now
afforded recognition in Germany. However, there is no provision
made for ancillary sealing and gagging relief. It remains to be
seen how this Directive will be implemented in practice in the
various EU jurisdictions.7 The fact that such a
Directive has been issued however must at least be viewed as a step
towards recognition of the utility of such procedures in locating
and preserving property or valuable information, albeit in this
case intellectual property.
Most common law jurisdictions specifically provide that certain
proceedings may be held in camera. However, where that
power is not specifically provided for, the Court's inherent
jurisdiction can always be appealed to. In effect a Court has power
to hear any matter or proceeding (or any part thereof) in
camera if it is satisfied that it is expedient, in the
interests of justice, or for other good and sufficient reason to do
so. Such reasons might include for example, the need to undertake
measures intended to combat fraud, uphold public security, or
indeed simply to protect confidential or proprietary information.
Secrecy orders are often used in the context of trade secrets
litigation, by way of illustration. They are also frequently used
in litigation involving minors and the family.
In addition, the Court's inherent jurisdiction can also be
appealed to in the context of seeking sealing and gagging relief.
Again this derives from the Court's inherent power to make any
Order necessary to enable it to act effectively. Support for this
contention can be found in the case of R v. Connolly
[1964] AC 1254, where the Court said:-
"There can be no doubt that a Court which is endowed
with a particular jurisdiction has powers which are necessary to
enable it to act effectively within such a...
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