5934/01 AUSTRALIAN SECURITIES AND INVESTMENTS COMMISSION V JOHN DAVID RICH & ORS
JUDGMENT
1 HIS HONOUR: These reasons for judgment relate to the question whether ASIC should be permitted, after the close of the defendants' case, to adduce evidence in reply, being affidavit evidence that ASIC served on the defendants before they opened their case.
Background
2 ASIC closed its case on 9 February 2006 (T 10,431.42). On 13 February 2006 senior counsel for the defendants informed the court that his clients would be going into evidence (T 10,434.10). On the defendants' application, a substantial adjournment was granted to give them time to complete the preparation of their affidavits and documentary tender. On 5 April 2006, after the defendants had served their affidavits on ASIC, ASIC made an application for another substantial adjournment before commencement of cross-examination of the defendants. Senior counsel for ASIC submitted (T 10,458) that, as the two defendants' affidavits comprised some 744 pages together with exhibits of 8,977 pages (some of which were documents already in evidence), an adjournment was needed to permit ASIC to formulate objections to admissibility, prepare for cross-examination, make inquiries and consider evidence in reply. He proposed to serve any evidence in reply shortly before the resumption of the hearing. An adjournment was granted, as requested, to 5 June 2006, and ASIC was directed to serve any evidence in reply by 31 May.
3 During the course of argument on the adjournment application, senior counsel for the defendants made it clear that his clients would oppose any application by ASIC to adduce evidence in reply (T 10,482.16). Senior counsel for ASIC submitted that the question whether ASIC should be allowed to have a case in reply could not be determined in vacuo, and should not be addressed until particular evidence for the proposed case in reply had been identified (T 10,462.38).
4 On 2 June 2006, after ASIC had served its proposed evidence in reply, the defendants made an application for a further adjournment for a week. Senior counsel for the defendants explained to the court (T 10,512) that the defendants wished to consider, in light of the proposed evidence in reply, whether to read certain paragraphs of their affidavits; whether it was necessary or desirable to clarify the meaning of certain paragraphs of the affidavits by supplementary oral evidence in chief; whether to seek to lead additional oral evidence in chief; and whether to add documents to defendants' tender. He said the defendants also wished to put in train some enquiries in relation to the evidence in reply, including some enquiries to make sure they had all the appropriate documentation (T 10,513). The adjournment was granted, for the period sought by the defendants.
5 The defendants opened their case on 13 June 2006. Senior counsel for the defendants made an opening address, the affidavit of Mr Rich was formally read and rulings were made on objections to admissibility. There followed lengthy cross-examination and re-examination of Mr Rich, and cross-examination of Mr Silbermann, which is continuing.
6 Mr Silbermann's cross-examination was interrupted on 14 August, to hear argument on the proposed evidence in reply, so as to minimise delay at the conclusion of the defendants' case. Submissions were directed to nine of the affidavits in reply that ASIC served on the defendants at the end of May 2006. It may be necessary to hear further argument with respect to an affidavit in course of preparation, in substitution for an affidavit whose deponent is ill, and with respect to ASIC's proposed tender of documents.
7 ASIC's nine new affidavits may be organised by subject matter as follows:
(1) Telstra billing issues: affidavits of Robert Trevor Dewstow made 26 May 2006 and Gary Spratt made 25 May 2006;
(2) monitoring traffic mix: Mr Spratt's affidavit;
(3) PricewaterhouseCoopers' retainer on One.Tel's billing system: affidavits of Ian Christopher Hockings made 31 May 2006 and Emma Suzanne McMahen made 24 May 2006;
(4) continuation of executives after voluntary administration: affidavit of Luke Kenneth Holtom made 31 May 2006;
(5) Lucent issues: affidavit of Phillip John Pryke made 30 May 2006;
(6) CLEC issues: affidavit John Linton made 31 May 2006;
(7) Optus billing issues: affidavits of George Malcolm Carmichael Adams made 23 May 2006 and Allan James Robertson made 25 May 2006.
Legal principles
8 In the present proceeding ASIC seeks declarations of contravention of a civil penalty provision, namely s 180(1) of the Corporations Law, the substance of which has been preserved by the Corporations Act 2001 (Cth) in respect of events occurring in the first half of 2001. It seeks disqualification orders and compensation orders. Section 1317L of the Corporations Act requires the court to apply the rules of evidence and procedure for civil matters when hearing proceedings for a declaration of contravention.
9 Rule 29.6 of the Uniform Civil Procedure Rules 2005 deals with the order of evidence and addresses in civil proceedings in this court. Where the "opposite party" (the defendants in this case) have elected to give evidence, then after the close of the opposite party's case, the beginning party (ASIC here) may make an address closing its case (rule 29.6(4)(c)). There is no express provision for evidence in reply, but it is established by case law that the court has a discretion to permit it.
10 As a matter of practice in the Equity Division, the plaintiff will usually serve any affidavits in reply before the commencement of the hearing, pursuant to directions of the court designed to avoid surprise and ensure that the hearing is conducted fairly and efficiently. If affidavits in reply have been served in a timely fashion, there is unlikely to be any contention that the plaintiff ought not to be permitted a case in reply, or any argument about whether the contents of affidavits in reply are limited to rebuttal or extend as well to supplementing the plaintiff's case in chief. This is because the defendants have received notice of the plaintiff's evidence and have had the opportunity, with leave, to respond to it. Often the affidavits in chief and in reply are read almost contemporaneously at the beginning of the hearing. There is no surprise or unfairness, absent unusual circumstances.
11 In the present case the usual procedure has not been followed, because the defendants, relying on their privilege against exposure to a penalty vindicated by them in the High Court (Rich v ASIC (2004) 220 CLR 129), chose not to state whether they would go into evidence or notify ASIC of their evidence until after ASIC closed its case. Inevitably, therefore, ASIC served its proposed evidence in reply to the defendants' evidence after the defendants had cross-examined ASIC's witnesses-in-chief. But, in contrast with the typical criminal cases where issues of "splitting the prosecution case" arise, ASIC served its proposed evidence in reply before the defendants opened their case, and time was given to the defendants to take ASIC's proposed evidence into account.
12 In Re HIH Insurance Ltd (in prov liq); ASIC v Adler (2001) 40 ACSR 214, a civil penalty case, the issue was whether ASIC should be permitted to read affidavits of its expert accountant in reply to the defendants' case. The issue was whether the affidavits were merely a rebuttal of the defendants' case, and therefore "strictly in reply", or were impermissible confirmation of the plaintiff's case (at [7]). Santow J (as his Honour then was) permitted ASIC to rely on one of the affidavits, which replied to the evidence of the defendants' expert, where the affidavit of the defendants' expert was filed after ASIC had closed its case. But he held that ASIC should not be permitted to rely upon an earlier affidavit of the same expert because to do so would impermissibly split ASIC's case (at [2]). His Honour referred to s 1317L and accepted that the case before him was to be treated as a civil case, so that the court's discretion was to be exercised more liberally than in a criminal case, but he found it was necessary to take into account that ASIC was acting in the public interest in what was essentially a civil prosecution, and that due regard had to be taken of the seriousness of the civil penalties involved (at [8]-[9]).
13 ASIC submitted that the court should adopt Santow J's approach in the present case. The defendants submitted that in light of the decision of the High Court in Rich v ASIC (2004) 220 CLR 129, decided after Santow J's judgment, the court's approach should be the approach taken in criminal cases, according to which the discretion to allow the prosecution to call further evidence after the close of the defence case is to be used only in exceptional circumstances (citing R v Chin (1985) 157 CLR 671; Shaw v R (1952) 85 CLR 365; Killick v R (1981) 147 CLR 565 and Lawrence v R (1981) 38 ALR 1).
14 In Rich the majority held that the defendants were not obliged to give discovery, because the case was a proceeding for the imposition of a penalty to the extent that disqualification orders were sought by ASIC, and consequently the defendants were protected by the privilege against exposure to a penalty. But this does not mean that the court equated a proceeding for a disqualification order with a criminal prosecution. On the contrary, Gleeson CJ, Gummow, Hayne, Callinan and Heydon JJ referred to s 1317L (at [19]) and said it followed from this provision that "the statute itself requires the application of the body of law which has developed in relation to the privileges against penalties and forfeitures, when deciding whether the appellant should be ordered to make discovery of documents in the proceedings". In other words, the proceeding is a civil proceeding but the rules of civil procedure include the privilege against exposure to a penalty, which is therefore applicable. Section 1317L does not abrogate the privilege (at [25]).
15 It seems to me that the approach taken by Santow J in Adler is consistent with the High Court's approach in Rich. The court treats an ASIC civil penalty case in which a declaration of contravention is sought as a proceeding subject to the civil rules of evidence and procedure, but when exercising its discretion in evidentiary and procedural matters, the court has regard to the nature of the proceeding as a civil penalty proceeding and the seriousness of the consequences of granting the relief sought (including disqualification orders that have a penal effect).
16 I doubt whether this approach is substantively different from the criminal procedure, in terms of principles or application. The following principles emerge from the criminal cases:
· the general principle is that the prosecution must present its case completely before the accused is called upon for his defence, and therefore, although the trial judge has a discretion to allow the prosecution to call further evidence after evidence has been given for the defence, the prosecution should be permitted to call evidence at that stage only if the circumstances are very special exceptional and, generally speaking, not if the occasion for calling the further evidence ought reasonably to have been foreseen (R v Chin (1985) 157 CLR 671, 676 per Gibbs CJ and Wilson J; at 684 per Dawson J; Shaw v R (1952) 85 CLR 365, at 380 per Dixon, McTiernan, Webb and Kitto JJ);
· this general rule is not merely a technical rule, but an important rule of fairness (Killick v R (1981) 147 CLR 565 at 569 per Gibbs CJ, Murphy and Aickin JJ; Lawrence v R (1981) 38 ALR 1 at 3 per Gibbs CJ);
· the accused is entitled to know the case which he has to meet so that he may have adequate opportunity to determine what questions he may wish to ask in cross-examination, what evidence, if any, he may wish to call and what objections, if any, he may wish to raise in the case against him (Chin at 685 per Dawson J);
· although there is no unfair prejudice to the accused in tendering damaging evidence against him in the course of the Crown case, there will frequently be unfair prejudice if a piece of the damaging evidence is kept until his case is in progress or his case is closed (Lawrence at 23 per Brennan J);
· the general rule applies with equal force whether the Crown seeks to introduce evidence during the course of the case for the defence or after the close of the case for the defence (Lawrence at 3);
· where evidence, though in rebuttal of the accused's evidence, is relevant to prove the prosecution case and would have been covered if the prosecution case had been fully and strictly proved, and the need to give it could have been foreseen, it will generally be rejected in reply (Chin at 676, 684-5; Shaw at 379-80);
· on the other hand, if any matter arises that was not reasonably foreseeable, and of which the Crown had no warning, the matter may be answered by the Crown (Shaw at 379-380, partially rejecting the formulation by Tindal CJ in R v Frost (1839) 4 St Tr (NS) 86 at 386);
· in this respect, the test of reasonable foreseeability has replaced the older view that the matter must be one which arose ex improviso and which no human ingenuity could foresee (Cross on Evidence, 6th Australian edn by JD Heydon (2000), [17650]);
· the general rule applies where the accused has raised an alibi, and so if the details of the alibi have not been disclosed before the trial, it will generally be right to say that the occasion for calling evidence to rebut the alibi could not have been foreseen, but if details of the alibi were known before the trial, refuting evidence should be called in chief (Killick at 569-70).
· the prosecution will not be prevented from giving evidence in reply directed to an issue the proof of which does not lie on the prosecution, such as insanity, or from rebutting evidence of the accused's good character, provided the prosecution has not anticipated the raising of an issue of this kind and led evidence with regard to it (Chin at 677, 685; Shaw at 379-380);
· evidence may be given in reply to prove some purely formal matter the proof of which has been overlooked in chief (Chin at 677).
17 Generally, the same principles govern the exercise of the court's discretion in civil cases. It is said that the court applies the principles about splitting the prosecutor's case "less strictly" to a plaintiff in a civil case, to use the language of the learned editor of Cross on Evidence at [17720], citing Shaw's case at 85 CLR 383 per Fullagar J, or "more liberally", to use the language of Santow J in Adler at [9]. But in a civil penalty case in which disqualification orders are sought, once one has regard to the nature of the proceeding and the seriousness of the consequences attaching to the relief sought, and all of the considerations affecting the particular evidence sought to be adduced, it is unlikely that the injunction to be "more liberal" will have any effect on the exercise of the discretion. At any rate, I have found in the present case that the application of the principles governing the exercise of the discretion in criminal and civil cases has led me to reasonably clear conclusions, without the need to consider whether to be, or not to be, "liberal".
18 The defendants submitted a list of matters that they claimed to be relevant to the exercise of the court's discretion to permit the plaintiff in a civil penalty proceeding to adduce further evidence after it has closed its case. I accept their list as a useful statement of relevant discretionary factors, applicable in such a case as the one before me. The list is as follows:
(a) the nature of the proceeding;
(b) whether the occasion for calling the further evidence ought reasonably to have been foreseen;
(c) the consideration of fairness that the defendant is entitled to know all of the evidence he has to meet in taking forensic decisions as to cross-examination and the nature and extent of the evidence he will himself adduce on the matters in question;
(d) the extent to which the plaintiff has embarked upon calling evidence on the issue in question in its case in chief;
(e) the importance of the issue on which the further evidence is sought to be adduced to the pleaded issues in the case;
(f) the degree of relevance and probative value of the further evidence sought to be adduced and its potential to involve an undue waste of time;
(g) the prejudice to the defendant in terms of delay in the completion of the proceeding and the consequential costs;
(h) the public interest in the timely conclusion of litigation;
(i) what explanation is offered by the plaintiff for not having called the evidence in chief.
19 These factors need to be considered by reference to the particular evidence that ASIC wishes to adduce in reply. The nature of factors (b), (d), (e), (f) and (i) is such that nothing useful can be said about them in the abstract. Factors (a), (c), (g) and (h) are amenable to some general comments. I have already commented on the significance of factor (a), in light of the decision in the Rich case.
20 As to factor (c), I have pointed out that in the present case, unlike the criminal cases cited by the defendants, ASIC served their proposed evidence in reply before the defendants opened their case, and the defendants were granted an adjournment specifically to permit them to consider the proposed evidence in reply, and to adjust their own evidentiary case in light of it. Therefore, this is not a situation where the defendants were deprived of the opportunity of meeting the plaintiff's whole case when they embarked on their own evidentiary case. Unfairness to the defendants, if any, would arise out of not knowing of the evidence in reply when they made their forensic decisions at an earlier stage, in preparing for cross-examination of ASIC's witnesses. There would not be any such unfairness if ASIC's proposed evidence were strictly in reply to the defendants' evidence, which ASIC could not have known until the defendants' affidavits and documents were served after it closed its case.
21 Factors (g) and (h) have particular weight where the proposed evidence is of limited utility - as in the case of Mr Linton's affidavit, for reasons I shall explain. Where the proposed evidence is material evidence served on the defendants before the opening of their case, and is strictly in reply, and ASIC has had no forewarning of the defendants' evidence to which the proposed evidence replies, fairness is likely to require that the evidence be permitted, even though it will add to the length of the trial. I say this in the context that counsel have estimated that the evidence in reply will occupy about 10 hearing days, if I permit ASIC to adduce all of it, in a trial of over 200 hearing days.
22 I turn now to the exercise of the court's discretion, bearing in mind these factors, with respect to the particular affidavit evidence that ASIC wishes to adduce.
(1) Telstra billing issues
23 The defendants provided the court with a written outline about the Telstra CSPA issues (DS 106), which referred to the pleadings and a substantial quantity of documentary and transcript evidence. I was taken to some of that evidence in oral submissions and I have now considered all of the matters that have been identified. However it seems to me unnecessary, for the purpose of expressing my reasons, to provide a full narrative account of the evidence.
24 In my view ASIC was on notice of the following things from the pleadings, its own evidence in chief, and cross-examination of its witnesses:
· the defendants were claiming in their Defences that the One.Tel Group had adopted the practice, consistently with normal industry practice, of withholding payment from carriers where there were billing or service disputes, and that there were deficiencies in billing data provided by Telstra (Rich Defence, paras S38B and S43);
· the 17 May board papers stated that there were "Telstra issues" regarding lack of provision of services, systematic and constant backbilling, and delay with implementation of eBill and links on line (MTB 1/293);
· the minutes record that Mr Rich told the 17 May board that the withholding of eBill had led to significant financial impacts and the loss of 80,000 Switch customers, and that negotiations were underway to investigate a commercial solution (MTB 1/330);
· the document "Major items beyond normal credit terms - as at 21 May 2001" (MTB 1/345) referred to "Telstra CSPA" which was said to be for an amount in dispute of $10 million;
· there is evidence that Mr Rich had told Mr Murdoch, in an e-mail on 23 April 2001, that he had a team reviewing the last 8 months of Telstra CDRs, and he expected to find significant over billing and customer sabotage (Annexure 4 to Mr Murdoch's affidavit made on 23 July 2004);
· there is evidence that CSPA issues, recorded in the Telstra tab of the carrier disputes.xls spreadsheet (exhibit P37-133) for a total amount of $46.8 million including "incorrect charging" of $6.2 million and "old data" of $16 million, were being handled by a team led by Mr Savva which had engaged Mr Dewstow as a consultant to assist in compiling the claim (cross-examination of Ms Ashley, T 5485);
· Ms Ashley said she was working on a system to check Telstra's Flex tape call data for errors (T 5588-5590), and a list of "Telstra dispute categories" (MFI 144, later DTB 12/5215) had been prepared;
· Ms Ashley said she attended a meeting with Mr Beck and representatives of Telstra on 10 May 2001 concerning One.Tel's claim that Telstra's tapes regularly contained old data (T 5590-3; exhibit P37-146);
· there were also documents in evidence, about which Ms Ashley was cross-examined, analysing aged flex tapes on a month-by-month basis (exhibits P37-148, P37-149), and adjusting the first January tape (MFI 147; JDR5/1806), and an e-mail from Mr Dewstow dated 3 May 2001 asking for similar adjustment records for later tapes, indicating that he was analysing payment files (MFI 150; JDR5/1805);
· in April 2001 One.Tel and Telstra exchanged lengthy letters concerning Telstra's delay in implementing eBill by insisting on security or a creditworthiness review, which suggest a substantial dispute, followed by further correspondence in May (exhibit MTB 7.4);
· on 30 April 2001 One.Tel wrote to Telstra raising issues of concern about Telstra's charging, saying that it had initiated an audit on Telstra billing (exhibit MTB 7.4);
· on 3 May 2001 One.Tel wrote to Telstra about 0BS billing data, expressing concern about tapes consistently containing billing data for calls older than 30 days (giving as an example the January ABS tapes said to contain $2.6 million attributable to call data older than 60 days), and further similar complaints were made about later tapes on 8 May and 10 May (exhibit MTB 7.4);
· on 4 May 2001 One.Tel wrote to Telstra about "critical operational issues", complaining about eBill and provisioning, and failure to implement LOLO except on a trial basis (exhibit MTB 7.4);
· on 10 May 2001 One.Tel wrote to Telstra making a complaint about 1900 charges (exhibit MTB 7.4);
· on 26 April 2001 Mr Spratt sent an e-mail to Mr Hodgson and Mr Beck on the subject "Telstra Project Plan", attaching a project outline which identified issues (MTB 9.18).
25 Generally speaking, Mr Rich's evidence (affidavit, paras 1421-1434) serves to confirm matters included in ASIC's case. He adds to this material in only limited ways. It seems to me that the main additional matters provided by Mr Rich's affidavit are:
(a) general statements about developing concern over One.Tel's conduct (paras 1421 and 1425);
(b) evidence that there was a meeting of the Fixed Wire team in mid-April, and what was said and decided at that meeting;
(c) evidence in para 1430 that the project team (the existence of which emerges from ASIC's evidence) was called "Project H" or "Project Hyena";
(d) evidence in para 1429 that Mr Spratt, who previously worked for Telstra and still had contacts there, told the meeting he had been informed that Telstra were pursuing a deliberate campaign to damage One.Tel's business and undermine it as a competitor, which Telstra called "Project Firestorm";
(e) Mr Rich's assertion (para 1433) that during April and May the Project H team "made substantial progress in beginning to assemble evidence of misconduct on the part of Telstra and to agitate a series of claims against Telstra", instanced by a list of matters which are largely documentary evidence, much of which was either tendered by ASIC or shown to ASIC's witnesses as MFIs;
(f) his statement that One.Tel retained "Mr Pewstow" as a consultant to assist in the preparation its claim against Telstra (para 1433a).
26 In my opinion matters (a) and (b) could readily be inferred from ASIC's evidence in chief (if the evidence is accepted), in the absence of evidence from Mr Rich. The evidence that I have summarised in bullet points above implies that there were concerns over the same Telstra issues that Mr Rich identifies, and that One.Tel established a Telstra project in the fixed wire business which addressed those issues (arguably a step likely to have been taken in a meeting of the Fixed Wire team). Matter (c), the name of the project team, is of no consequence in itself. Matter (d) is considered below. I shall deal with matter (f) when considering Mr Dewstow's affidavit, but for the reasons I shall give, my conclusion is that evidence responding to that matter should not be allowed as evidence in reply.
27 Mr Rich's claim in matter (e), that the Project H team made "substantial progress" in the ways stated in para 1433, was specifically referred to by senior counsel for ASIC as a matter justifying a reply (T 13,480). But Mr Rich's assertion is a very modest claim, limited only to progress in "beginning to assemble" evidence and "to agitate a series of claims". It is not an assertion that the claims against Telstra were verified or strong or successful. Understood in that limited fashion, is again a matter readily capable of being inferred from the evidence in ASIC's case, particularly the correspondence in MTB 7 and the project outline in MTB 9.
28 This analysis suggests that Mr Rich's evidence about the Telstra CSPA issues was not new unforeseeable evidence, requiring a reply. Nevertheless ASIC wishes to reply by reading the affidavits of Mr Spratt and Mr Dewstow.