The nature and scope of the privilege
6 Legal professional privilege (or client legal privilege as it is called in the Uniform Evidence Acts) protects the confidentiality of certain categories of communications made in connection with the provision or receipt of legal advice or the provision of legal services, including representation in proceedings in a court: Esso Australia Resources Limited v Federal Commissioner of Taxation (1999) 201 CLR 49 at [35] (Gleeson CJ, Gaudron and Gummow JJ). As the claim for privilege is made in the context of an application for pre-trial access to documents, it is governed by the common law and not the Evidence Act 1995 (Cth): Esso at [3].
7 The party claiming privilege bears the onus of proving the facts necessary to establish the relevant privilege, including that the communications or documents in question were made or created for the required dominant purpose. It is not sufficient for a party merely to assert a claim for legal professional privilege: Grant v Downs (1976) 135 CLR 674 at 689 (Stephen, Mason and Murphy JJ), Esso at [52] (Gleeson CJ, Gaudron and Gummow JJ), although inferences may be drawn from the available material: DSE (Holdings) Pty Ltd v InterTAN Inc (2003) 135 FCR 151 at [29] (Allsop J). As Stephen, Mason and Murphy JJ said in Grant v Downs at 689:
It is for the party claiming privilege to show that the documents for which the claim is made are privileged. He may succeed in achieving this objective by pointing to the nature of the documents or by evidence describing the circumstances in which they were brought into existence. But it should not be thought that the privilege is necessarily or conclusively established by resort to any verbal formula or ritual.
8 The privilege only protects the relevant kinds of communications if they were brought into existence for the dominant purpose of providing legal advice or legal services: Esso at [61] (Gleeson CJ, Gaudron and Gummow JJ). The communications in question are said to attract what is often referred to as "litigation privilege", as opposed to "legal advice privilege". That is, it is said that they are communications which "at their inception [came] into existence", at the instigation of either the lawyer or the client, "for the dominant purpose of being used in aid of pending or contemplated litigation: Buttes Gas and Oil Co. v Hammer (No. 3) [1981] QB 223 at 243 (Lord Denning MR).
9 In Ventouris v Mountain [1991] 1 WLR 607 at 612 Bingham LJ said:
The courts must not in any way encroach on the right of a litigant or potential litigant to seek and obtain legal advice on his prospects and the conduct of proceedings under the seal of confidence nor on the right of such a litigant and his legal adviser to prepare for and conduct his case without, directly or indirectly, revealing the effect of that advice. In recognition of these rights, perhaps generously interpreted, proofs of witnesses, whether factual or expert, and communications with potential witnesses, have been held immune from production.
10 The difference between advice privilege and litigation privilege is that litigation privilege applies to communications with third parties but advice privilege does not and it applies to communications made otherwise than for the purpose of giving and receiving legal advice, such as gathering evidence for the purpose of litigation, and it only applies when litigation is on foot or reasonably in contemplation: JD Heydon, Cross on Evidence (13th ed, LexisNexis, 2021) [25210] fn 435.
11 The respondents claimed that the communications over which they claim privilege fall within the fifth category identified by Lockhart J in Trade Practices Commission v Sterling (1978) 36 FLR 244 at 246, which consists of:
Communications and documents passing between the party's solicitor and a third party if they are made or prepared when litigation is anticipated or commenced, for the purposes of the litigation, with a view to obtaining advice as to it or evidence to be used in it or information which may result in the obtaining of such evidence.
12 Some of the documents in packet S13 may be capable of answering this description but none of the documents in packet S14 are capable of doing so as Packet S14 only consists of text messages passing between Mr Gillespie and Mr Marshall. If those documents are protected by legal professional privilege, then they must fall into the sixth of the categories in Sterling in that they are:
Communications passing between the party and a third person (who is not the agent of the solicitor to receive the communication from the party) if they are made with reference to litigation either anticipated or commenced, and at the request or suggestion of the party's solicitor; or, even without any such request or suggestion, they are made for the purpose of being put before the solicitor with the object of obtaining his advice or enabling him to prosecute or defend an action.
13 There is no doubt that communications must be confidential to attract legal advice privilege. Equally, it is clear that, under s 119 of the Evidence Act, in order for litigation privilege to attach to communications or documents, the communications or the contents of the document must have been confidential. The position at common law is not so clear.
14 In the present case both sides proceeded on the basis that all the communications had to be confidential. Mr Smartt, who appeared for Ms Edwards, relied on Australian Competition and Consumer Commission v Cadbury Schweppes Pty Ltd (2009) 174 FCR 547 (ACCC v Cadbury Schweppes) at [35] in which Mansfield, Kenny and Middleton JJ said at [35]:
As to confidentiality, we would have thought that the scope of the confidentiality arising from litigation privilege is different from advice privilege. We say this because when dealing with third parties, such as potential witnesses, unless there is a separate confidentiality agreement with such third parties, then, subject to the principle in Harman [1983] 1 AC 280 (as explained in Hearne v Street (2008) 235 CLR 125 at [109] per Hayne, Heydon and Crennan JJ (Hearne)), such potential witnesses would be free to discuss with others their potential evidence. Of course, the position would be different if there was a confidentiality agreement with such a potential witness, because in that case the client might seek to enforce the obligation of confidentiality arising out of such an agreement.
(Emphasis added.)
15 In the immediately preceding paragraph ([34]), however, their Honours observed that:
There has been some controversy over whether litigation privilege is confined to communications or whether it extends to documents themselves, the need for confidentiality in "litigation privilege", and the independent existence of "litigation privilege" itself: see eg New South Wales v Jackson [2007] NSWCA 279; Public Transport Authority (WA) v Leighton Contractors Pty Ltd (2007) 34 WAR 279 at [20]; and Ligertwood A, Australian Evidence (4th ed, LexisNexis Butterworths, 2004) pp 291-292.
16 Their Honours did not discuss either of those cases or mention what was written in the text.
17 In State of New South Wales v Jackson [2007] NSWCA 279 the Court was concerned with a claim under s 119 of the Evidence Act and Giles JA, with whom Mason P and Beazley JA agreed, merely referred to the existence of a controversy over the need for confidentiality in litigation privilege at common law (at [37]). In Australian Evidence (4th ed, LexisNexis Butterworths, 2004) at pp 291-292 Andrew Ligertwood wrote:
The ambit of the litigation privilege is contentious. A statement taken from a witness for the purposes of litigation is privileged in the hands of lawyer or client. But it seems that a copy of that statement in the hands of the witness will only be privileged if the witness owes a duty of confidentiality to the party taking the statement.
18 I will come to Public Transport Authority (WA) v Leighton Contractors Pty Ltd (2007) 34 WAR 279 shortly. Before I do, however, I wish to refer to a couple of authorities discussed in it.
19 In Ritz Hotel Ltd v Charles of The Ritz Ltd (No 22) (1988) 14 NSWLR 132 at 133-4 McLelland J said:
It seems to me to be an essential element in a claim for legal professional privilege that the material, disclosure of which is sought to be precluded is, so far as the person from whom disclosure is sought is concerned, confidential. Now, whether in the case of communications between a party or its representative on the one hand and a potential witness on the other, those communications can be said to be confidential so far as the potential witness is concerned, may be a nice question in many circumstances. In the case of an independent witness to some event who is interviewed by a party or his solicitor or representative with a view to his making an affidavit or giving evidence in anticipated or pending proceedings, the details of that interview would not in my view be confidential so far as the potential witness is concerned in the absence of special circumstances, because the potential witness in that situation is not a person owing any duty of confidentiality to the party or to the party's solicitor or representative. And in a situation of that kind, 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.
20 In Southern Equities Corporation Ltd v West Australian Government Holdings Ltd (1993) 10 WAR 1 the Supreme Court of Western Australia was concerned with an affidavit sworn by a person who had since died which was included in the plaintiff's list of documents and over which the plaintiffs claimed litigation privilege. The defendants insisted they were entitled to inspect it as, by its nature, it was not a document prepared with the intention that it remain confidential for all time but was intended to be communicated to the court and other parties. The Master ordered the plaintiffs to produce the affidavit for inspection. On appeal, Malcolm CJ, Seaman and White JJ granted the plaintiffs leave to appeal and allowed the appeal, upholding the privilege claim. The leading judgment was given by Seaman J.
21 Seaman J held that it was enough to support the claim of litigation privilege that the affidavit was a document which passed between the plaintiff's solicitor and the witness, was prepared when litigation was commenced, and was created solely for the purposes of advancing the litigation by obtaining evidence to be used in it (at 22). Malcolm CJ agreed (at 4), adding that evidence obtained for the purposes of litigation, whether in the form of an unsigned proof of evidence, a signed proof of evidence, or a sworn affidavit is privileged from disclosure or inspection. His Honour went on to say that privilege attaches to statements taken from potential witnesses in the hands of the solicitor, regardless of the capacity of, or potential for, the witnesses to disclose their statements to others (at 5). White J agreed with both Malcolm CJ and Seaman J (at 22).
22 The issue was discussed at length in Leighton at [20]-[35] in the judgment of McLure JA, with whom Steytler P and Miller JA agreed. That case was concerned with documents discovered by the Australian Bureau of Statistics to which Leighton sought access and over which the Authority claimed privilege. The documents were witness statements from three ABS employees. There was no express communication between the Authority's solicitors and the ABS about the confidential status of the communications between them. The primary judge held that the communications were protected by litigation privilege only if the ABS owed a duty of confidentiality to the Authority and it did not. Leave to appeal was granted and the appeal allowed.
23 McLure JA observed that there are numerous general statements in the High Court which, on their face, are capable of applying to all categories of legal professional privilege to the effect that the privilege only attaches to confidential communications (at [22]). Her Honour referred to Goldberg v Ng (1995) 185 CLR 83 at 93, 105; Commissioner of Australian Federal Police v Propend Finance Pty Ltd (1997) 188 CLR 501 at 508; Mann v Carnell (1999) 201 CLR 1 at [28]; Esso at [35]; Daniels Corporation International Pty Ltd v Australian Competition and Consumer Commission (2002) 213 CLR 543 at [9]-[11], [44]. She also noted that the correctness of Southern Equities on the issue of confidentiality has been doubted, citing Heydon JD, Cross on Evidence (7th ed, LexisNexis Butterworths, 2004) [25225] fn 363. In principle and, having regard to these authorities, her Honour expressed her own reservations about the correctness of the proposition that litigation privilege protects non-confidential communications, although it was unnecessary to determine the question in that case (at [33]).
24 Regardless, since there is no property in witnesses, McLure JA acknowledged that there is no restriction on an independent witness who has provided a witness statement from providing the information the subject of that statement to any other person (at [31]-[32]), citing Harmony Shipping Co SA v Saudi Europe Line Ltd [1979] 1 WLR 1380 at 1384 (Lord Denning MR).
25 The reasons the Court upheld the appeal appear in [34]-[35] of her Honour's judgment:
I am satisfied that there is sufficient confidentiality in this case to sustain the appellant's claim for litigation privilege in relation to the documents in the hands of the ABS. The claim is for privilege from production pursuant to compulsory court process. Whether or not the witness may owe duties of confidentiality that are sourced not in the privilege but in a separate legal basis such as contract or equity is of no relevance in that context.
It is sufficient in my view if the lawyer, to the knowledge of the witness, intended the communications to be and remain private. Having regard to the nature and purpose of the activities of the appellant's lawyers and the circumstances of privacy in which the communications occurred, it can be inferred that the appellant's solicitors intended the communications to be and remain private, which intention must have been apparent to the ABS witnesses who, notwithstanding that they were under no obligation to do so, co-operated and provided the information sought by the appellant's lawyers. Those circumstances, in combination with the duty of the appellant's lawyers to keep the information confidential, are sufficient to entitle the appellant to privilege in respect of the communications in the hands of the ABS.
26 In Australian Competition and Consumer Commission v NSW Ports Operations Hold Co Pty Ltd [2020] FCA 1232 (ACCC v NSW Ports) Wigney J also reviewed the authorities. His Honour concluded at [46] that the better view appears to be that confidentiality is an essential requirement if a communication is to attract legal professional privilege. His Honour's conclusion is supported by Heydon in the latest edition of Cross on Evidence (13th ed) (at [25225] at fn 482). His view is that "notwithstanding the interesting analysis of the cases in [Southern Equities], the prepondence of authority requires that the document be confidential in the sense that it is brought into existence with the expectation that it will not be circulated beyond the camp of the party in whose cause it was prepared, at least for a time".
27 Having regard to the position taken by the parties, I propose to proceed on the same basis.