The foundation for that principle is the perception that great mischief would result if those engaged in the administration of justice were not at liberty to speak freely. The immunity is not confined to actions for defamation. As McTiernan J noted in Cabassi (at 144) with reference to the rule in its application to witnesses: "It is a rule of law that no civil action lies at the suit of any person for any statement made by a witness in the course of giving evidence in a judicial proceeding. The rule, which is founded on public policy, is not confined to actions for defamation but applies to any form of action."
23 In Giannarelli Wilson J (p 576) expressed the view that it was the imposition of liability for in court negligence which raised a real risk of grave damage to the administration of justice and which would be prevented by recognising an immunity from suit. Brennan J (p 579) emphasised the importance of freedom from the chilling threat of civil suit by the parties to the litigation. Similarly, Dawson J (p 596) referred to the need for protection against actions, whether for damages for defamation or for negligence, which are ill founded as much as against those which are soundly based.
24 In D'Orta-Ekenaike v Victoria Legal Aid [2005] HCA 12; (2005) 223 CLR 1, McHugh J pointed out (par 99) that the cases show that neither a judge nor a witness nor counsel can be sued even for false and defamatory statements made maliciously in the course of judicial proceedings. He explained that this immunity rests in part (par 192):
"…on the necessity that those who participate in the administration of justice should not be hampered in the discharge of their duties by fear of litigation concerning what they say and do. The administration of justice demands fearless and independent advocates who are not hampered in the discharge of their role by the need to consider whether their conduct might be actionable. The advocates' immunity from a suit for defamation in part rests on this basis."
25 However, the central justification for the immunity of advocates and other participants in litigation is the principle that controversies once resolved are not to be reopened except in a few narrowly defined circumstances (D'Orta-Ekenaike pars 45, 84, 190; Giannarelli).
26 The privilege or immunity against civil liability is granted, not for the benefit of judges, advocates, parties, or witnesses but in the interests of the administration of justice (Giannarelli per Mason CJ p 557, Wilson J p 576; Cabassi v Vila [1940] HCA 41; (1940) 64 CLR 130, per Starke J p 140).
27 The scope of the immunity so far as criminal prosecutions are concerned was considered in Jamieson v R [1993] HCA 48; (1993) 177 CLR 574 in which it was held that there is, prima facie, a similar immunity against criminal prosecutions in respect of words used by a person, including a party, in the ordinary course of judicial proceedings. Deane, Dawson JJ said (p 582):
"The general proposition, enunciated by Lord Mansfield in R. v. Skinner ((7) (1772) Lofft 54, at p 56 (98 ER 529, at p 530).), that "neither party, witness, counsel, jury, or Judge, can be put to answer, civilly or criminally, for words spoken in office", must be qualified by a number of well-established exceptions. In particular, in so far as criminal proceedings are concerned, it must be qualified as regards substantive administration of justice offences (such as perjury, contempt of court and, depending upon the circumstances, perverting the course of justice) and offences associated therewith (such as conspiracy and attempt). Nonetheless … the proposition as so qualified remains valid as a general statement of common law principle."
28 Innumerable cases demonstrate that the rule does not preclude, in appropriate circumstances, examination by a court of things done and said by an advocate in the course of proceedings in court. In D'Orta-Ekenaike McHugh J (pars 196-200) examined many cases in which the competence of counsel was under scrutiny in claims that deficient representation provided the basis for an appeal. He pointed out (par 197) that the matters are overwhelmingly of a criminal character and almost always dismissed. Nevertheless, when claims involving a challenge to counsel's conduct of a case are made the courts are obliged to determine whether they have any substance.
29 It is well established, of course, that the in court conduct of an advocate is liable to be called into question by professional disciplinary bodies, including the courts. By way of example, it is sufficient to refer only to Clyne v NSW Bar Association [1960] HCA 40; (1960) 104 CLR 186 in which it was held that the appellant's conduct in proceedings before a magistrate justified an order that his name be struck off the roll of barristers.
30 In New South Wales the common law rule that there is an absolute privilege against an action for defamation is confirmed by s 27 of the Act which, relevantly, provides:
"27 Defence of absolute privilege
(1) It is a defence to the publication of defamatory matter if the defendant proves that it was published on an occasion of absolute privilege.
(2) Without limiting subsection (1), matter is published on an occasion of absolute privilege if:
…
(b) the matter is published in the course of the proceedings of an Australian court or Australian tribunal, including (but not limited to):
(i) the publication of matter in any document filed or lodged with, or otherwise submitted to, the court or tribunal (including any originating process), and
(ii) the publication of matter while giving evidence before the court or tribunal, and
(iii) the publication of matter in any judgment, order or other determination of the court or tribunal, or"
31 The conclusions which I draw from the cases on immunity relevant to the question in this application are: