IV. Confidentiality - issue (a)
14 Mr Newlinds SC, who, with Ms Mahmud of counsel, appeared for the defendants, submitted that it was not shown that the communications were confidential - the witnesses were free to speak of what they had told ASIC to anyone else and there was no prohibition on ASIC not releasing the statements itself. I interpolate at this point that it was not in dispute that ASIC had, in fact, kept the materials entirely confidential. Mr Cook parried these propositions in two distinct ways. First, he submitted that at common law the question of whether interview materials with proposed witnesses are confidential depends on the identity of the person from whom production is being sought; or to put the matter a different way, it is possible for the materials to be confidential in the hands of the lawyers who take the statement but not in the hands of the witness. What is necessary, therefore, is that the documents in question be confidential in the hands of the person from whom production is sought. Speaking of the situation where production was sought of such materials from a third party witness having no relationship of confidentiality with the plaintiff McLelland J thought in Ritz Hotel Ltd v Charles of the Ritz Ltd (No.22) (1988) 14 NSWLR 132 at 134 that 'the question whether a claim for protection from disclosure of the communications on the basis of legal professional privilege should be upheld would in my opinion depend on whether the disclosure sought is, on the one hand, from the party or his solicitor or representative, in which case the claim should succeed, or, on the other hand, from the independent witness, in which case the claim should fail.'
15 Secondly, it being therefore necessary to focus on whether ASIC - rather than the witnesses - received the materials in confidential circumstances, attention was to be directed to s 127 of the Australian Securities and Investments Commission Act 2001 (Cth) and its requirement that ASIC 'must take all reasonable measures to protect from unauthorised use or disclosure information: (a) ….in connection with the performance of its functions or the exercise of its powers under the corporations legislation'. It not being in dispute that whatever ASIC was doing during this time was being done in connexion with the performance of its functions or the exercise of its powers under the Australian Securities and Investments Commission Act and the Corporations Act 2001 (Cth) it followed that its possession of the material was confidential in the requisite sense.
16 Mr Newlinds SC and Ms Mahmud in their written submissions argued that in relation to the draft witness statements which ASIC had provided to third party witnesses there could be no confidentiality and cited State of New South Wales v Jackson [2007] NSWCA 279 in support of that proposition. There is no doubt that that decision of the Court of Appeal did so hold but there is no inconsistency between that conclusion and the decision of McLelland J in Ritz Hotel for the former is concerned with the operation of the NSW Act and the latter, the common law. Giles JA (with whom Mason P and Beazley JA agreed) closely considered Ritz Hotel (esp. at [53]-[55]) and McLelland J's conclusion that the question of confidentiality might depend for its answer upon the identity of the person from whom production was sought. Giles JA noted that this was not an issue under the NSW Act ('[d]ifferential confidentiality does not matter for the definitions in the Act, since it is enough that one of the parties to the communication or the preparation of the document is under an obligation not to disclose its contents': [55]). But there was a critical difference between the operation of the common law and the NSW Act. Both required that there be confidentiality but at common law it was sufficient that the confidential nature of the communication could spring from the fact of its being privileged. Under the definition of 'confidential communication' contained in s 117 the ultimate conclusion that a communication was privileged could not assist in determining that it was confidential in that circular fashion. 'Confidential communication' is defined in s 117 of both the Act and the NSW Act to be a communication 'made in such circumstances that, when it was made: (a) the person who made it, or (b) the person to whom it was made, was under an express or implied obligation not to disclose its contents, whether or not the obligation arises under law.' Giles JA was content to accept that the rationale for litigation privilege was not rooted in the confidentiality of the relationship but instead in providing what has been referred to as a 'zone of privacy' for a solicitor's work product. 'But I do not think' said Giles JA 'that this reasoning is available in order to find a confidential communication or a confidential document within the meaning of the definitions in s 117(1) of the Act. The rationale involves confidentiality, but it is confidentiality afforded by the privilege itself. The party's interest in keeping confidential the communication or document it received is not confidentiality because of an express or implied obligation on the party not to disclose the communication or document. It is confidentiality because of protection from compulsory disclosure by the party' (at [58]).
17 It follows that on this particular issue the common law and the Act significantly diverge. If the Act applied I would conclude that it was not enough, by itself, to engender litigation privilege that ASIC consulted with third party witnesses to prepare witness statements in contemplation of litigation. However, because the matter is governed by the common law it is sufficient.
18 In any event, even if that were not so, I would have accepted Mr Cook's secondary argument that ASIC came into possession of the materials in circumstances attended by an obligation of confidentiality. The consequence of Ritz Hotel is that Mr Cook had no need of this second string; its relevance would only arise if the matter were governed by the Act (it not being in dispute that the documents in question had not been disclosed to anyone else). But had the matter been governed by the Act it would have provided the obligation of confidentiality referred to in s 117(1). Mr Newlinds SC, in his succinct argument, submitted that the obligation erected by s 127(1) of the Australian Securities and Investments Commission Act was so cut through with exceptions that the obligation thereby erected could not constitute a sufficient obligation of confidentiality. So, for example, under s 127(2A) ASIC could disclose material obtained in the course of the performance of its functions to the Minister, the Secretary of the Department, the Australian Prudential Regulation Authority or the Reserve Bank of Australia; s 127(2B) permitted disclosure to a Royal Commission; and s 127(4) permitted disclosure to a wide variety of government agencies if the Chairperson of ASIC were satisfied that that disclosure would assist the relevant agency in the discharge of its functions.
19 I do not think, however, that the possibility that these exceptions might be hypothetically activated in a particular case means that the obligation of confidentiality conferred by s 127(1) does not relevantly exist. Mr Newlinds SC took me to the High Court's decision in Johns v Australian Securities Commission (1993) 178 CLR 408 to make good the defendants' argument but I confess it seems to me to establish the contrary proposition. In that case, Mr Johns had been the subject of compulsory examination by the Commission from which transcripts had been produced. The hearings at which this occurred were private hearings. Apart from a presently irrelevant issue as to the ability of the Commission to impose conditions on the use to which disclosed transcripts might be put, the first issue was whether the Commission was obliged to afford Mr Johns procedural fairness before authorising the Royal Commission to use its transcripts in public. The second issue was whether there should be any relief against media outlets who had published parts of them in the public domain. The Court upheld Mr Johns' argument on the first issue and rejected it on the second. Three of the five Justices thought that the Commission's obligation to keep the transcript confidential (and Mr Johns' corresponding right to that effect) were sufficient interests to attract the rules of procedural fairness. Speaking of the power to release the transcripts to a State agency (which included the Royal Commission) Brennan J (with whom Dawson and Gaudron JJ agreed on this issue) thought that the exercise of that power (the power in s 127(4)(b)) 'is apt to affect adversely the interests of an examinee who is prima facie entitled to have the confidentiality of the transcript of the examination observed' (at 430). McHugh J also thought that the obligation arose but his Honour located its source in Mr Johns' interest in his reputation (at 470-471).
20 In any event, the ratio decidendi of Johns is that the obligation of confidentiality arising from s 127(4)(b) is a sufficient one to bring into play the common law obligation to afford the party having the benefit of the obligation procedural fairness. That conclusion was not blocked by the fact that the statutory obligation of confidentiality was subject to statutory exceptions; it was not submitted, and it was not held, that there was an absence of confidentiality on that basis. Three of the Justices did think that the confidentiality generated by s 127(4)(b) had been lost by reason of the publication in the media of the transcripts so that they had ceased to have the necessary quality of confidence for the purposes of the law of confidential information (the remaining two Justices thought the evidence on that topic inadequate and would have remitted the matter to the Court below for further hearing on that issue).
21 In those circumstances, I cannot extract from Johns the proposition that there is no relevant obligation of confidentiality arising from s 127 merely because it is subject to exceptions, at least for the common law of procedural fairness. Nor do I think that such a proposition should be embraced for privilege purposes. No doubt, where it is shown (as it was in Johns) that confidentiality has been lost as a matter of fact then it will be pointless to say, either as a matter of the law of privilege or of procedural fairness, that confidentiality exists. But until that factual occurrence, the hypothetical possibility that such disclosures may occur under the terms of s 127 itself is not sufficient to mean that there is no obligation of confidentiality.
22 In the defendants' written submissions a slightly different tack was taken. There was no evidence 'to justify the existence of any obligation, be it express or implied, on the relevant witness to keep the documents confidential'. Reference was again made to Jackson for the proposition that 'where documents were provided to or shown to the third party witnesses there cannot have been any element of confidentiality on either ASIC or the third party witness'. But this ignores the fact that in Jackson there was no provision such as s 127(1). In those circumstances, I conclude that all of the communications were relevantly confidential.