Standing to claim costs
16 The Bigambul #2 Applicant submitted that the Gamilaraay Applicant was not entitled to an award of costs on the basis that:
it was represented by Queensland South Native Title Services (QSNTS), which is a representative body under Part 11 of the Native Title Act; and
there was no evidence that the Gamilaraay Applicant would be required to pay QSNTS any costs of the proceeding.
17 Similar arguments were canvassed before Mansfield J in Far West Coast Native Title Claim v State of South Australia (No 8) [2014] FCA 635, and rejected. His Honour found that Native Title representative bodies incur costs in conducting the matter on behalf of the applicant for the claim group, and as such a costs order may be warranted. In particular his Honour said:
[17] Although, the applicant did not personally incur legal costs by engaging SANTS, there is no doubt that SANTS incurred legal costs in defending Mr Miller's interlocutory application.
[18] In my view, this situation is analogous to the relationship between the Crown and its legal officers. In Inglis v Moore (No 2) (1979) 46 FLR 470, St John and Brennan JJ found at 472:
[A] successful party who is represented by the Crown Solicitor in litigation in which the Crown has an interest is not disentitled to costs from an unsuccessful party merely because he is not under a personal liability to the Crown solicitor for costs.
…
[T]he Crown, by virtue of its interest in the subject-matter of the litigation was entitled to make its solicitor available to act for the party on the record, and that as the Crown incurred the expense of his employment the party he represented was entitled to recover the costs awarded to him.
[19] The position is well-established. In The Begarin (1916) 12 Tas LR 26 at 26-27, Nicholls CJ found that the Crown does not have its cases conducted free of cost, but instead pays salaries which must be taken to be merely the mode in which it remunerates its legal officers who conduct its cases for it. This is not dissimilar to salaries paid to salaried lawyers from legal aid institutions and public bodies and authorities.
[20] Going back further, Lord Stormonth Darling observed in Lord Advocate v Stewart (1899) 36 Sc LR 945 at 945:
So long as fees proposed to be charged are reasonable in amount … there is no reason why he should escape part of the consequences of his unrighteous litigation merely because of this arrangement between the Crown and its officers. In one sense, no doubt, he does not cause any additional expense to the Crown; because the salaries would have to be paid whether he litigated or not. But it is to be presumed that the salaries have been calculated on the footing of there being an average amount of litigation, and each salary therefore may be said to contain the equivalent of each separate fee; if so, there is no injustice in the Crown being recouped to that extent by the losing party.
[21] The established jurisprudence is that a party who is represented by the Crown Solicitor or Australian Government Solicitor notionally incurs cost to his solicitor although he will not have to pay any money to the solicitor: see Ditton v Gallagher (1992) 110 ACTR 12 at 15 per Gallop J.
[22] I recognise that the present relationship is a little different in that it is between a Native Title Representative Body and a claim group. However, in my view there is a close analogy to the cases referred to above. Firstly, where a Native Title Representative Body has provided legal assistance in relation to the conduct of a native title determination application, costs will have been incurred by its legal officers on behalf of the applicant for the claim group and even though the applicant for the claim group may not expect to be liable to pay for them, the relationship is such that underlying it is the understanding that such a liability may exist. The Representative Body is providing legal services, and fulfilling its statutory mandate, as contemplated by the NT Act on behalf of that applicant. In addition, the Representative Body in turn is funded to provide those services in a way which expressly provides for the application of those funds in that way. It may be added that the reverse to the present position may also occur. A costs order under s 43 of the FCA Act, having regard to s 87A of the NT Act, may be made in appropriate circumstances against an applicant, and those costs would then in the normal course be paid through the Representative Body provided the applicant was represented through it.
[23] Legal aid institutions and Native Title Representative Bodies are similar in nature. They derive most of their funding from the government and do not directly charge legal costs to those whom they represent. Native title Representative Bodies like SANTS serve a more special function in that, inter alia, they provide assistance with respect to native title applications: Division 3 of Pt 11 the NT Act.
[24] The argument that SANTS cannot seek costs orders points out that the NT Act does not contain detailed statutory guidance like those in legal aid regimes. In my view, the lack of a specific costs regime in the NT Act such as appears in the legislation referred to in [16] above does not make their respective positions different in principle so as to preclude Native Title Representative Bodies from seeking costs. Section 85 of the NT Act confers wide discretion on the court to make cost orders. That power exists and must be understood in the context of the NT Act. It contemplates that bodies such as SANTS may have an employed legal team which conducts on behalf of an applicant a claim such as the present, and alternatively, that it may fund an independent lawyer or lawyers to provide the legal services to conduct such a claim. It would be difficult to suggest that the independent lawyer, funded by SANTS, should not be able to seek costs from another party in appropriate circumstances. That is what s 85A contemplates. That should equally apply where the SANTS legal team does that work. The roles and functions of Native Title Representative Bodies are set out in great detail in Pt 11 of the NT Act. It is not uncommon for Native Title Representative Bodies such as SANTS to rely on the Commonwealth for funding. Counsel for Mr Miller recognised that expense incurred in litigation in native title matters does reduce SANTS' capacity to provide other litigation assistance to other claimants. To preclude those bodies from seeking costs orders through an applicant, including disbursements such as those to counsel, when appropriate could work obvious injustice in a real and practical sense where SANTS is either funding the legal services for the applicant or is providing its own legal resources to the applicant.
[25] If Native Title Representative Bodies are unable to seek cost orders, it will always be the position that there will be no cost orders when the party represented by a Native Title Representative Body is successful, however any respondent party may conduct its case. On the other hand, the argument of Mr Miller would mean that if a party represented by a Native Title Representative Body is unsuccessful, that party is left open to an adverse costs order. That is clearly not what s 85A contemplates. Indeed, if Mr Miller's contention is correct, it would mean that this court's discretion to make costs orders is substantially restricted. That would be inconsistent with the Full Court in Cheedy.
[26] In my view, the applicant is entitled to seek cost orders in the terms sought.
18 I respectfully endorse the comments of Mansfield J in Far West Coast, and consider they are applicable in the present case. It follows that I reject the submission of the Bigambul #2 Applicant that the Gamilaraay Applicant was not entitled to seek costs on the basis it was represented by QSNTS.