Ground 25
158This ground of appeal is that "the trial judge erred in ordering the plaintiff to pay the defendant's costs on an indemnity basis from February 2011". The ground is inadequately drafted, because it does not identify the respects in which it is alleged the trial judge erred in making that order. However, those grounds emerged adequately in the course of the Appellant's written submissions.
The Offer of Compromise
159The Offer of Compromise was made on Friday, 11 February 2011. The case was set down to commence on Monday, 21 March 2011, ie five weeks and two days later. Ten days had been set aside for the hearing.
160The offer stated that it was open to be accepted until 5.00pm on 4 March 2011 (which was a Friday). Thus, it allowed twenty-one days for acceptance. It annexed a copy of a proposed consent judgment or order. The first term of that proposed judgment or order was:
"The plaintiff shall cause this action to be mentioned in court and apply for approval of these consent orders and such other order as may be deemed expedient in accordance with the provisions of the Uniform Civil Procedure Rules 2005. Subject to such approval as aforesaid:"
161It then went on to identify a judgment sum, and made provision for making repayment of amounts due under the Health and Other Services (Compensation) Act 1995 and for other payments in respect of workers compensation or other social security benefits that were deductible from a verdict amount.
Relevant Statutory Provisions
162UCPR 20.26 provides:
"(1) In any proceedings, any party may, by notice in writing, make an offer to any other party to compromise any claim in the proceedings, either in whole or in part, on specified terms.
...
(6) An offer may be expressed to be limited as to the time it is open for acceptance.
(7) The following provisions apply if an offer is limited as to the time it is open for acceptance:
(a) the closing date for acceptance of the offer must not be less than 28 days after the date on which the offer is made, in the case of an offer made 2 months or more before the date set down for commencement of the trial,
(b) the offer must be left open for such time as is reasonable in the circumstances, in the case of an offer made less than 2 months before the date set down for commencement of the trial.
163As the offer was made less than two months before the date set down for commencement of the trial, UCPR 20.26(7)(b) required that the offer be left open for such time as is reasonable in the circumstances.
164UCPR 20.27 provides:
"(1) A party may accept an offer by serving written notice of acceptance on the offeror at any time during the period of acceptance for the offer.
...
(3) If an offer is accepted in accordance with this rule, any party to the compromise may apply for judgment to be entered accordingly."
165UCPR 20.28 provides:
"(1) A party who accepts an offer may withdraw the acceptance in any of the following circumstances by serving written notice of withdrawal on the offeror:
(a) if the offer provides for payment of money, or the doing of any other act, and the sum is not paid to the offeree or into court, or the act is not done, within 28 days after acceptance of the offer or within such other time as the offer provides, or
(b) if the court grants the party leave to withdraw the acceptance.
(2) If acceptance of an offer is withdrawn:
(a) except as provided by paragraph (b), all steps in the proceedings that have been taken as a consequence of the offer having been accepted cease to have effect, and
(b) the court may give directions:
(i) to restore the parties as nearly as may be to their positions at the time of the acceptance, and
(ii) to give effect to any steps in the proceedings that have been taken as a consequence of the offer having been accepted, and
(iii) to provide for the further conduct of the proceedings,
and may do so either after the offer is withdrawn or when granting leave to withdraw the offer."
166UCPR 20.29(2) provides:
"If the defendant, being a party to an accepted offer, fails to comply with the terms of the offer, the plaintiff is entitled:
(a) to such judgment or order as is appropriate to give effect to the terms of the accepted offer, or
(b) to an order that the defence be struck out, and to judgment accordingly,
as the plaintiff elects, unless the court orders otherwise."
167Section 3 Civil Procedure Act 2005 contains the following definition:
"person under legal incapacity means any person who is under a legal incapacity in relation to the conduct of legal proceedings (other than an incapacity arising under section 4 of the Felons (Civil Proceedings) Act 1981) and, in particular, includes:
(a) a child under the age of 18 years, and
(b) an involuntary patient, a forensic patient or a correctional patient within the meaning of the Mental Health Act 2007, and
(c) a person under guardianship within the meaning of the Guardianship Act 1987, and
(d) a protected person within the meaning of the NSW Trustee and Guardian Act 2009, and
(e) an incommunicate person, being a person who has such a physical or mental disability that he or she is unable to receive communications, or express his or her will, with respect to his or her property or affairs."
168Even though the Appellant does not fall within any of paras (a)-(e) of that definition, it is still possible for her to be a "person under legal incapacity", within the meaning of the definition, if she falls within the chapeau, as a "person who is under a legal incapacity in relation to the conduct of legal proceedings". Whether a person is under a legal incapacity is always a task-specific matter, dependent upon whether the person has the ability to understand and evaluate the particular task that is in question: Guthrie v Spence [2009] NSWCA 369; (2009) 78 NSWLR 225 at [174]-[175]. Thus, the Appellant may well be able to carry out a multitude of tasks involved in her daily life, but still lack the capacity to understand and evaluate the matters involved in the conduct of legal proceedings, and for that reason fall within the definition of "person under legal incapacity". The present case has at all times been conducted on the basis that the Appellant is a "person under legal incapacity", within the definition in s 3.
169Section 76 Civil Procedure Act states:
76 Settlement of proceedings commenced by or on behalf of, or against, person under legal incapacity
(1) This section applies to proceedings commenced by or on behalf of, or against, any of the following persons:
(a) a person under legal incapacity ...
...
(3) Except with the approval of the court, there may not be:
(a) any compromise or settlement of any proceedings to which this section applies ...
...
as regards a claim made by or on behalf of, or against, a person referred to in subsection (1).
(4) If an agreement for the compromise or settlement of any matter in dispute in any such proceedings is made by or on behalf of a person referred to in subsection (1), the court may approve or disapprove the agreement.
(5) An agreement disapproved by the court does not bind the person by whom or on whose behalf it was made.
(6) An agreement approved by the court binds the person by whom or on whose behalf it was made as if he or she were of full capacity and (if it was made by some other person on his or her behalf) as if that other person had made the agreement as his or her agent."
170Pursuant to s 11 of the Interpretation Act 1987, which makes a definition in a statute also apply to delegated legislation made under that statute, the definition of "person under legal incapacity" in the Civil Procedure Act also applies to the Uniform Civil Procedure Rules.
171Part 7, Division 4 of the UCPR is headed "persons under legal incapacity". It contains the following provisions:
"7.14 Proceedings to be commenced or carried on by tutor
(1) A person under legal incapacity may not commence or carry on proceedings except by his or her tutor.
(2) Unless the court orders otherwise, the tutor of a person under legal incapacity may not commence or carry on proceedings except by a solicitor.
7.15 Tutors generally
...
(6) Anything that these rules authorise or require a party to do in relation to the conduct of proceedings may, if the party is a person under legal incapacity, be done on his or her behalf by his or her tutor.
172UCPR Part 42, contains the following provisions:
"42.13 Application
This Division applies to proceedings in respect of which an offer of compromise (the offer concerned) is made under rule 20.26 with respect to a plaintiff's claim (the claim concerned).
...
42.15 Where offer not accepted and judgment as or less favourable to plaintiff
(1) This rule applies if the offer concerned is made by the defendant, but not accepted by the plaintiff, and the plaintiff obtains an order or judgment on the claim concerned as favourable to the plaintiff, or less favourable to the plaintiff, than the terms of the offer.
(2) Unless the court orders otherwise:
(a) the plaintiff is entitled to an order against the defendant for the plaintiff's costs in respect of the claim, to be assessed on the ordinary basis, up to the time from which the defendant becomes entitled to costs under paragraph (b), and
(b) the defendant is entitled to an order against the plaintiff for the defendant's costs in respect of the claim, assessed on an indemnity basis:
(i) if the offer was made before the first day of the trial, as from the beginning of the day following the day on which the offer was made, ..."
The Reasons for Judgment Concerning Costs
173The primary judge delivered additional reasons for judgment on 15 June 2011 relating, inter alia, to an application by the Respondent for an order for indemnity costs from 11 February 2011. He observed that the Offer of Compromise was made after a mediation hearing had occurred, and that no additional evidence was put before him on the issue of costs. In particular, he observed that he was unaware of any discussions that had occurred between the Appellant's representatives and the Tutor or the Appellant concerning the Offer of Compromise.
174The judge noted an argument by counsel for the Appellant that offers of compromise cannot apply to a plaintiff under a disability because of the requirement for the Court of approve any settlement offer. He rejected that argument:
"If that point had validity it disappears in light of the specific requirement of term one of the proposed terms of settlement which required the plaintiff to bring the matter before the Court for an approval in accordance with the relevant legislation."
175The judge reminded himself, in summary form, of principles governing the awarding of indemnity costs by reason of a failure to accept an offer of compromise.
176He reminded himself of Morgan v Johnson (1998) 44 NSWLR 578 at 581-2, where Mason P (Sheller JA agreeing) said, concerning the then applicable provisions concerning offers of compromise under Part 19A District Court Rules 1973 and Part 52, rule 17(5) and Part 52A, rule 22(6) Supreme Court Rules 1970:
"(1) The purpose of the rule is to encourage the proper compromise of litigation, in the private interests of individual litigants and the public interest of the prompt and economical disposal of litigation: Maitland Hospital (at 725-726); Hillier (at 421, 431).
(2) The aim is to oblige the offeree to give serious thought to the risk involved in non-acceptance: Maitland Hospital (at 724).
(3) The prima facie consequence of non-acceptance will be that the rule will be enforced against the non-accepting party: NSW Insurance Ministerial Corporation v Reeve (at 102); Hillier (at 422). This is because, from the time of non-acceptance 'notionally the real cause and occasion of the litigation is the attitude adopted by [the party] which has rejected the compromise': Maitland Hospital (at 724); see also Hillier (at 420).
(4) Lying behind the rule is the common knowledge that 'litigation is inescapably chancy': Maitland Hospital (at 725). For this reason, the ordinary provision is expected to apply in the ordinary case: ibid NSW Insurance Ministerial Corporation v Reeve (at 102-103). The mere fact that it was reasonable for the litigant to take the view that he or she did in rejecting the offer is not enough to displace the rule: NSW Insurance Ministerial Corporation v Reeve (at 102). As Clarke JA expressed it in Houatchanthara (at 2-3):
'The rule lays down the general principle that should be applied, and the order provided for in that rule should only be departed from for proper reasons which, in general, only arise in an exceptional case. It is clear that if the rule operates, the plaintiff will be significantly disadvantaged, but that disadvantage flows naturally from the risks of litigation. The idea behind the rule is to encourage settlement or compromise of proceedings, and more specifically, to encourage litigants to give serious consideration to the settlement of proceedings. Where an offer is made by a defendant to a plaintiff, the latter is put on notice that unless he or she accepts that offer, there is a significant risk that the order provided for by the rule may follow. In declining to accept the offer, the plaintiff undertakes the risk and the consequences that flow naturally from that risk.'
(5) The discretion to displace the rule is a judicial one, requiring the private and public purposes of the rule to be borne in mind: Maitland Hospital (at 725-726). Reasons must be given for 'otherwise ordering': Hillier (at 419); Quach."
177Those principles continue to be applicable concerning the UCPR provisions concerning the cost consequences of offers of compromise.
178The judge also reminded himself of Caine v Lumley General Insurance Ltd (No 2) [2008] NSWCA 109 at [35], where McColl JA (Mason P and McClellan CJ at CL agreeing) said:
"The onus is on the respondent to demonstrate why the Court should not order the respondent to pay the appellants' costs on an indemnity basis. In particular, the respondent must establish that it had given serious thought to the risks involved in not accepting the offers, had assessed the appellants' case properly and in the context of the relevant rules and the achievement of their purpose as outlined in Morgan. Generally, exceptional circumstances are required to justify such an order denying the appellants' entitlement: South Eastern Sydney Area Health Service v King [2006] NSWCA 2 (at [83]) per Hunt AJA (Mason P and McColl JA agreeing)."
179The judge noted an argument that the time required to consider the offer was not reasonable in all the circumstances of the case, given that it had to be discussed with the Tutor and perhaps negotiations undertaken with the workers compensation insurer. The judge did not deal with this particular argument. Not every failure by a judge to deal with an argument that is put vitiates the judge's decision. However, the expedient way of dealing with this ground of appeal is to assume, without deciding, that this failure to deal with the argument vitiates the judge's decision, and to re-exercise the discretion.
No Application of Rules about Offers of Compromise to Persons Under Legal Incapacity?
180The Appellant repeats on the appeal her submission that the rules concerning offers of compromise do not apply, as a matter of construction, to a situation where the plaintiff is a person under legal incapacity suing through a tutor. The Appellant submits that UCPR 20.27 could not apply to a person under legal incapacity, because it presupposes that a binding agreement will arise upon acceptance of an offer. The Appellant submits that UCPR 20.29 similarly presupposes that an accepted offer gives rise to an agreement that is capable of being implemented by a judgment or order. The Appellant submits that for a binding agreement to arise on acceptance of an offer would be inconsistent with the court's supervisory jurisdiction under s 76.
181The correctness of this submission requires an examination of the effect of the statutory requirement that "except with the approval of the court, there may not be any compromise of any proceedings ..." on an agreement made by a tutor to settle litigation.
182Section 76 does not create a criminal offence (cf Yango Pastoral Company Pty Ltd v First Chicago Australia Ltd (1978) 139 CLR 410). Section 76(3) does not use the language of prohibiting the making of a contract to settle litigation. Rather, it is the compromise or settlement itself that cannot arise except with the approval of the court.
183There is some fuzziness of meaning in the phrase "any compromise or settlement of proceedings". Sometimes it refers to a binding agreement that when implemented will result in the proceedings being finally brought to an end. Sometimes it refers to the activities that, by being done, bring the litigation to an end. In the latter sense, there is a compromise or settlement of proceedings when by agreement court orders are made that result in a res judicata so far as the cause of action asserted in the proceedings is concerned, or when a plaintiff enters a deed that releases all rights concerning the cause of action sued on.
184Some of the people who fall within the definition of "person under legal incapacity" will be able to be bound effectively by contracts (in particular, someone who is a protected person, in relation to whom the manager will be able to enter contracts within the scope of the power conferred on the manager, and people who have granted an enduring power of attorney) but others will lack the capacity to enter contracts. Section 76 must be construed so that it operates in both of these possible types of situation. For people who lack capacity to contract, the only way a compromise or settlement of litigation can occur is by the making of court orders. Subsections (4) and (5) of s 76, presuppose that there can be an "agreement for the compromise or settlement of any matter" even before the approval of the court is sought, granted, or refused. That provides some basis for concluding that "compromise or settlement of proceedings" has the latter of the meanings I have just mentioned. Section 76(6) speaks as though, once approved, an agreement to compromise binds the person under legal incapacity. However, that is consistent with the prohibition in s 76(3) being on the legal acts that effect the compromise or settlement.
185UCPR 7.14 requires that everything that a person under legal incapacity does in the commencing and carrying on proceedings be done by his or her tutor. UCPR 7.15 confers legal authority on a tutor to bind the person under legal incapacity. It confers that authority even if the tutor is someone who would not otherwise have authority to bind the person under legal incapacity, by being the manager of a protected person's estate, or the donee of an enduring power of attorney. However the authority that UCPR 7.15 confers on the tutor arises only concerning a limited class of acts, namely acts that the UCPR "authorise or require a party to do in relation to the conduct of proceedings". One of the things that UCPR authorises a party to do in relation to the conduct of proceedings is to accept an offer of compromise. UCPR 20.27 expressly confers that authority on a party. Thus a literal reading of the rules leads to a conclusion that a tutor can accept an offer of compromise, and thereby give rise to an "agreement for the compromise or settlement of [a] matter", within the meaning of s 76(4) and (5). But what is the effect of such an agreement?
186Rules of the Supreme Court Order 80, rule 11, was an English provision that had some similarity to s 76. It provided:
"Where in any proceedings ... money is claimed by ... a person under disability no settlement ... shall ... be valid without the approval of the court."
187In Dietz v Lennig Chemicals Ltd [1969] 1 AC 170 an agreement had been reached for the settlement of a claim under the Fatal Accidents Act 1846 brought by a widow on behalf of herself and her young child. The settlement agreement was expressed to be "subject to the approval of the court". Before the order granting that approval had been entered, the defendant repented. The House of Lords held that the settlement agreement had no effect at all. The clearest expression of that view was by Lord Pearson, at 190:
"In my view, 'not valid' means having no legal effect. The settlement, so far as it related to the £9,250, in which the infant was interested, was only a proposed settlement until the court approved it. Either party could wilfully have repudiated it at any time before the court approved it. It had no validity by virtue of the parties' agreement in the August settlement. That which might have given it validity would have been an order made by the master with the effective consent of the parties ..."
188That decision has been applied in England, concerning a later rule in the same terms, in Drinkall v Whitwood [2003] EWCA Civ 1547; [2004] 1 WLR 462 and Brennan v ECO Composting Ltd [2006] EWHC 3153 (QB); [2007] 1 WLR 773. However, that reasoning turned on the English rule being stated in terms of whether the settlement was "valid". Section 7632) Civil Procedure Act is cast in different language.
189Smallman v Smallman [1972] Fam 25 concerned an agreement for property settlement in a divorce. The agreement that the parties made stated that it was subject to the approval of the court. Lord Denning MR explained the statutory context in which such agreements were made, at 31:
"It is very common for agreements to be made in divorce proceedings 'subject to the approval of the court.' This has been so ever since the enactment of the Matrimonial Causes Act 1963 (now section 5 of the Matrimonial Causes Act 1965) which validates a bargain which represents an honest negotiation between the parties provided it is disclosed to the court. ...
Since the Divorce Reform Act 1969 also it is common for agreements to be made 'subject to the approval of the court' and to seek the opinion of the court under section 7 as to the reasonableness of them."
190The only part of s 5 Matrimonial Causes Act 1965 that relates in any way to disclosure to the court is subsection (2):
"Provision may be made by rules of court for enabling the court, on application made either before or after the presentation of the petition, to take into consideration for the purpose of this section any agreement or arrangement made or proposed to be made between the parties and to give such directions in the matter as the court thinks fit; but nothing in this subsection affects any duty of the parties to disclose to the court any agreement or arrangement made between the parties in contemplation of or in connection with the proceedings." (Latey at 1405)
191Section 7(1) Divorce Reform Act 1969 provided:
"Provision may be made by rules of court for enabling the parties to a marriage, or either of them, on application made either before or after the presentation of a petition for divorce, to refer to the court any agreement or arrangement made or proposed to be made between them, being an agreement or arrangement which relates to, arises out of, or is connected with, the proceedings for divorce which are contemplated or, as the case may be, have begun, and for enabling the court to express an opinion, should it think it desirable to do so, as to the reasonableness of the agreement or arrangement and to give such directions, if any, in the matter as it thinks fit."
192The rule made to give effect to that provision was clause 6 of the Matrimonial Causes Rules 1971. Apart from procedural matters such as parties and service, all that rule said was:
"On the hearing of an application under this rule the judge may express an opinion, should he think it desirable to do so, as to the reasonableness of the agreement or arrangement and may give such directions, if any, in the matter as he thinks fit." ((7) on page 1560 of Latey)
193Thus, the statutory provisions that were relevant in Smallman said nothing about invalidity of settlements, nor did they impose a statutory requirement for approval of a settlement. The statutory provisions were purely enabling, and it was only the contract between the parties that made their agreement subject to the approval of the Court.
194In Smallman, Lord Denning, at 31-2, stated:
"In my opinion, if the parties have reached an agreement on all essential matters, then the clause 'subject to the approval of the court' does not mean there is no agreement at all. There is an agreement, but the operation of it is suspended until the court approves it. It is the duty of one party or the other to bring the agreement before the court for approval. If the court approves, it is binding on the parties. If the court does not approve, it is not binding. But, pending the application to the court, it remains a binding agreement which neither party can disavow. Orr LJ has drawn my attention to a useful analogy. Many contracts for the sale of goods are made subject to an export or import licence being obtained. Such a condition does not mean that there is no contract at all. It is the duty of the seller, or the buyer, as the case may be, to take reasonable steps to obtain a licence. If he applies for a licence and gets it, the contract operates. If he takes all reasonable steps to obtain it, and it is refused, he is released from his obligation. If he fails to apply for it or to do what is reasonable to obtain it, he is in breach and liable to damages: see Brauer & Co (Great Britain) Ltd v James Clark (Brush Materials) Ltd. [1952] 2 TLR 349 and A V Pound & Co Ltd v M W Hardy & Co Inc [1956] AC 588. Similarly when a man agrees to buy property 'subject to the title being approved by our solicitor.' there is a binding contract. There is an implied promise by the buyer that he will appoint a solicitor and shall consult him in good faith, and that the solicitor shall give his honest opinion. If the solicitor honestly disapproves, the contract does not bind. But until he does disapprove, the contract binds: see Hussey v Horne-Payne (1879) 4 App Cas. 311, 322 and Marten v Whale [1917] 2 KB 480, 486. Branca v Cobarro [1947] KB 854 is on the same lines."
195Smallman has been applied to agreements to compromise litigation under the Family Provision Act 1982. There is no statutory obligation to seek approval of an agreement to compromise such litigation, but if the settlement is to be implemented by court orders the court must satisfy itself that it has jurisdiction to make the order, and that the particular order is one that ought to be made in terms of s 7 of the Act: Bartlett v Coomber [2008] NSWCA 100 at [37], [72], [84]-[86]. Thus, an agreement to settle such proceedings by the making of orders is binding on the parties, insofar as it obliges them, either expressly or impliedly, to approach the court to seek the making of the orders: Mitchell v Osborne (Supreme Court of NSW, Young J, 20 May 1997, unreported); Groser v Equity Trustees Ltd [2008] VSC 163; (2008) 19 VR 598 at [24]-[26]; Coomber v Stott [2007] NSWSC 513 at [28] and [66] per Macready AsJ.
196There is High Court authority concerning what contractual obligations arise when a statute prohibits a particular type of transaction (typically, a dealing in Crown land) from occurring without the consent of a governmental official, and a contract is entered for such a transaction, that makes no mention of obtaining the consent. Such a contract is construed as operating within the confines of this prohibition, insofar as it can. It is construed as containing implied terms binding the appropriate parties to do all things reasonable to seek the consent, binding both parties to do nothing to jeopardise the obtaining of the consent, and that if the consent is not obtained the contract goes off: Egan v Ross (1928) 29 SR (NSW) 382 at 387-8; Butts v O'Dwyer (1952) 87 CLR 267 at 279-280, 282-283, 285; McWilliam v McWilliams Wines Pty Ltd (1964) 114 CLR 656 at 660-661; Brown v Heffer (1967) 116 CLR 344 at 349-50.
197In Fisher v Marin [2007] NSWSC 1411 Patten AJ at [83]-[89] followed Smallman concerning an agreement for compromise of litigation, made on behalf of a person under legal incapacity by her tutor. He held that the agreement for compromise was binding on the parties, and there was an implied term to bring the agreement to the court for approval. Consistently with the various authorities that I have discussed, that decision was correct.
198It is possible for an offer of compromise to be made so that it is conditional upon some event, other than acceptance of the offer, occurring: Oxlade v Gosbridge Pty Ltd (No 2) [1999] NSWCA 165 at [7]. The effect of s 76 is to impose a condition on any agreement to settle proceedings that arises from acceptance of an offer of compromise. Thus, when a person under legal incapacity, by his or her tutor, accepts an offer of compromise, that acceptance does not itself give rise to a complete binding agreement for the settlement of the proceedings. However, it gives rise to some contractual obligations. In the absence of an express obligation to seek the approval of the court (which there would be if the offer in the present case had been accepted) there would be an implied obligation on the part of the tutor to seek the approval of the court. In the event that the court grants its approval, there is then a binding agreement in the terms of the offer of compromise. If the court were to not approve the compromise it would presumably be prudent to seek leave under UCPR 20.28(1)(b) to withdraw the acceptance of the offer, so that it was not left to implication of law that those contractual obligations that arose from acceptance of the offer had come to an end.
199I would accept that UCPR 20.27(3) must be read down so that it operates only subject to s 76, but that does not mean that the entirety of the provisions concerning offers of compromise do not apply to litigation to which a person under legal incapacity is a party. Similarly, in the administration of UCPR 20.29(2), the court would, presumably, "order otherwise" if a plaintiff who had accepted an offer, but not obtained approval, sought to invoke UCPR 20.29(2). In that way, the rule is not inconsistent with the provisions concerning offers of compromise applying to persons under legal incapacity.
200For these reasons, I do not accept the Appellant's submission that the rules concerning offers of compromise do not apply when an incapable person is suing through a tutor.
201In what I take to be an invocation of the principle that legislation should not be interpreted to produce results that are absurd, extraordinary, capricious or irrational (Cooper Brookes (Wollongong) Pty Ltd v Commissioner of Taxation (Cth) (1981) 147 CLR 297 at 321; Ganter v Whalland [2001] NSWSC 1101; (2001) 54 NSWLR 122 at [35]-[36]) the Appellant submits that it would be unfair to impose upon a tutor who has no knowledge and can have no knowledge in most instances of all the relevant facts responsibility to form a view as to whether a particular offer is reasonable. The Appellant also submits that for the offer of compromise provisions to apply to a tutor would place the tutor in an intolerable position of conflict of duty and interest.
202How this conflict arises requires some explanation. Even though in the present case the order for costs that was made was against the Appellant, such an order is enforceable against a tutor: Yakmor v Hamdoush (No 2) [2009] NSWCA 284; (2009) 76 NSWLR 148 esp at [24]. As well, it was held in Yakmor at [45] that there is jurisdiction for the court to make an explicit costs order against a tutor. That decision was reached on the basis that the tutor was a party to the litigation. Yakmor was decided at a time when UCPR 42.3 permitted costs orders against a non-party in only limited circumstances. Since then, the UCPR have been amended so that there is no longer a restriction on making costs orders against non-parties: Arena Management Pty Ltd (Receiver & Manager Appointed) v Campbell Street Theatre Pty Ltd [2011] NSWCA 128; (2011) 281 ALR 304 at [24]-[25]. However, in accordance with the reasoning in Yakmor it would still be possible to make a costs order directly against a tutor.
203I accept that at the time the offer of compromise in the present case was made, there was a risk that a costs order might be enforced, or sought, against the tutor. The Appellant submits that it would be unreasonable for the tutor to be placed in a position of conflict between his duty to act in the best interests of the plaintiff, and his interest in protecting his own assets as a consequence of an offer of compromise.
204It is hard to see how these matters affect the construction of the relevant legislation and the principles of contractual construction that I have referred to. A tutor is always at risk that he or she might be liable to pay a costs order made against the person under legal incapacity, or that a costs order might be made against him or her directly. The tutor's personal liability is likely to arise if the person under legal incapacity loses the litigation, or loses an issue that is clearly dominant or separable: James v Surf Road Nominees Pty Ltd (No 2) [2005] NSWCA 296 at [31]-[35]; Elite Protective Personnel Pty Ltd v Salmon (No 2) [2007] NSWCA 373 at [6]-[11]. The service of the offer of compromise changes the scope of the tutor's risk concerning costs, by bringing about a risk that the tutor might have to bear costs even if the person under legal incapacity succeeds in the litigation. However, it does not bring about such a radically different situation that Parliament could not have intended it. An anomaly arising from what, on all other tests of construction, is the correct construction of legislation must be a very serious one, before the court is justified in using that anomaly as a reason for rejecting what otherwise seems correct construction: Ganter at [36]; ACQ Pty Limited v Cook [2008] NSWCA 161; (2008) 72 NSWLR 318 at [127]; Chen v Kevin McNamara & Son Pty Ltd [2012] VSCA 63 at [33].
Offer Open for Only Twenty-One Days Makes it Invalid?
205The Appellant points out that the offer was open for only twenty-one days. I take it that that is a submission that it was not a valid offer, because it was not open for "such time as is reasonable in the circumstances", as required by UCPR 20.26(7)(b).
206When a litigant seeks an indemnity costs order by reason of failure to accept an offer of compromise, the onus of proving that it was an offer in accordance with the rules lies on that party. However, if all that is shown is that an offer, that is open for twenty-one days, is made after a mediation, and five weeks prior to the hearing being due to start, I would infer that that was a reasonable time. After a mediation, and as close as that to the start of the hearing, parties ordinarily could be expected to be well aware of the strengths and weaknesses of their respective cases.
207In assessing what was "such time as is reasonable in the circumstances" for the purposes of UCPR 20.26(7)(b), the fact that the offer is made to a person under legal incapacity might sometimes be, or give rise to, a relevant factor. If there was some matter, relevant to the Appellant being under legal incapacity, that detracted from the inference that twenty-one days was a reasonable time, there would be an onus on the Appellant of adducing evidence to show what that matter was. No such evidence was adduced.
Appropriate to "Order Otherwise"?
208Alternatively, the Appellant submits that the judge should have "otherwise ordered", in accordance with Part 42.14(2). I accept that, in principle, factual circumstances arising from an offer having been made to the tutor of a person under legal incapacity might sometimes enter into a court's decision whether to "order otherwise" for the purposes of UCPR 42.15.
209I will consider seriatim the Appellant's submissions about why the court should "otherwise order".
210"(a) The offer was made less than two months before the matter was listed for a 10 day trial, at a point in time when much of the legal expenses and other costs would already have been incurred."
I have difficulty in seeing why this is a reason to "otherwise order". The effect of an unaccepted offer of compromise can only be to alter the burden of costs for the future, from the time the offer is made. The burden of costs incurred up to that time is likely to fall on whoever proves to be the losing party in the litigation, as would be the case whether the offer of compromise was made or not.
211"(b) It may have been difficult to get appropriate instructions from the tutor [to] marshal evidence for the approval and have the matter listed for approval and determined prior to the trial. In any event during the time that this would necessarily have taken legal expenses and costs in respect of the primary trial would have continued to have been incurred as there would be no guarantee the court would approve the settlement and accordingly trial preparation would need to continue. In fact there is no evidence that was before the Primary judge that would have suggested that the court would have approved any settlement on the information that would have then been available to the Judge hearing the approval."
If there were any difficulties in obtaining instructions or marshalling evidence, it was for the Appellant to demonstrate them to the judge, yet no evidence to do so was put on. That trial preparation would need to continue while approval was being sought can be accepted, but I do not see why that is a reason to "otherwise order". The transcript of the argument that preceded the judgment that the primary judge gave on 15 June 2011 is in the appeal books, and it seems that no argument on this point was put to the primary judge. Similarly, if the Appellant wished to contend that it was unlikely that approval would have been granted, if sought, it would be necessary to establish that proposition by evidence and argument, yet that was not done.
212"c. The offer was not specified to be open for 28 days as is the prima facie requirement under the Rules (in this case only 23 or 24 days.)"
The submission that the offer was open for twenty-three or twenty-four days is wrong as a matter of simple arithmetic. However, for the reasons I have previously given, the time that the offer was open was prima facie reasonable. If there were any particular facts that made it unreasonable, the evidentiary onus was on the Appellant to establish those facts.
213"d. The difficult situation that the appellant was in concerning workers compensation repayment and the interplay with the social security system. The appellant would have been precluded for approximately 300 or more weeks from receiving any Centrelink allowance in circumstances where the workers compensation insurer would be insisting on full repayment of its workers compensation payments (the workers compensation insurer not being concerned with any compromise that was necessary to resolve the principle proceedings) thus leaving the appellant at risk concerning her ability to survive. In fact once continued entitlement to weekly benefits and ongoing entitlement to medical expenses is factored in then the appellant is significantly better off than she would have been had she ... accepted the offer of compromise. The Workers Compensation repayment was approximately $309 000: T556.8, T9.5 (15/6/2011). Medical expenses were approximately $130 000. Given the Primary judge's findings medical expenses were subsequently agreed at $17 202.83."
The Appellant, correctly, does not submit that the amounts of workers compensation and social security payments that she must repay from the verdict enter into whether she has received "an order or judgment on the claim concerned as favourable to the plaintiff, or less favourable to the plaintiff, than the terms of the offer", within the meaning of UCPR 42.15(1). Rather, the submission is that those amounts provide a reason for the court to "otherwise order".
214It has been held that if a plaintiff recovers less than the amount of an offer that was made, the fact that being ordered to pay costs would significantly reduce the plaintiff's verdict is not a proper consideration on the basis on which to make the consequences arising under the rules not apply: Hillier v Sheather (1995) 36 NSWLR 414 at 422; Dalma Formwork (Australia) Pty Ltd v Maricic (No 3) [2008] NSWCA 29 at [19]-[22]. The reasons that Kirby P gave in Hillier at 422 for the burden of costs not been taken into account in deciding whether to "otherwise order" included:
"They are precisely the considerations which the rule anticipated would arise. Indeed, their occasional occurrence is exactly the sanction which the rule imposes upon people in the position of the cross-respondent. Through the burdens cast upon her in this case, the rule is designed to send a clear signal to litigants, and their legal representatives, which will promote early settlement discussion outside the court and realistic consideration of offers made. A significant new peril has been introduced for litigants and those advising them."
215In my view analogous reasoning is equally applicable concerning the workers compensation and social security payments that the plaintiff in a personal injuries action must make from any verdict money. The obligation to make those payments is an ordinary incident of personal injuries litigation. That a plaintiff will have to pay these expenses is no more a reason to "otherwise order" than is the fact that a plaintiff will have a liability to pay his or her own lawyers.
216In any event, while the judge had the amount of the workers compensation repayment before him, and the total medical expenses that had been incurred, it would be necessary to demonstrate by argument and calculation that the Appellant was better off than she would have been had she accepted the offer of compromise. No such argument or calculation was provided to the primary judge.
217"e. The Primary Judge relied in part for his ultimate assessment of damages on some video footage in respect of which the respondent had made ex parte application and then later application on notice to withhold from the appellant prior to trial. That application was dealt with by Judge Truss who granted the respondent's application shortly before trial and accordingly the appellant's tutor was deprived of any knowledge of surveillance material which could have affected his decision to accept or not accept the offer of compromise: J71.184. This argument in the case of a capable plaintiff is met, quite rightly, by the submission that whilst the plaintiff's legal advisors did not know about the plaintiff's activities the plaintiff herself did. Here the decision to settle however was not that of the plaintiffs. It was the decision of the plaintiff's tutor. He was therefore deprived of important information (so the Primary Judge found) which could have affected his decision to accept or not accept the offer of compromise in circumstances where the material was withheld solely for the respondent's perceived forensic advantage."
218"f. Similar considerations apply to the lay evidence from Dr [A], the defendant, an employee of the Westpac Bank at Campsie and several medical practitioner employees all called in the respondent's case and unknown to the tutor."
219These grounds are unpersuasive. If the tutor was not aware that his mother was capable of carrying out whatever physical activities were depicted in the video footage, it was for him to put evidence before the court to say so. Likewise, it was for the tutor to establish to the judge that he was unaware of the facts that arose from the evidence of Dr A, the defendant, the Westpac employee and the medical practitioner employees.
220An important factor in his Honour declining to "otherwise order" was:
"McColl JA [in Caine] makes it clear that for the Court to be able to exercise its undoubted discretion the party resisting such an order needs to explain why the offer of compromise was rejected. That has not happened in this case. In fact I do not even know if the offer was discussed. Whilst I sympathise with the plaintiff's situation and the difficulties involved in dealing with her, the tutor was really the only person who mattered. No reason has been advanced as to why he rejected this offer if indeed he knew of its existence and the ramifications of a refusal."
221I agree with that reason.
222There is no occasion to alter the judge's costs order.