Grounds 5 and 6: The quality of the evidence and the decision to inspect
52 There is some overlap between Grounds 5, 6 and 7. Ground 5 concerns the primary Judge's assessment of the evidence to support the claims of privilege; Ground 6 the primary Judge's decision to inspect the documents; and Ground 7 the question of whether members of NRFA were sufficiently independent and detached so that their communications and documents with respect to Mr Martin's claims could attract legal professional privilege.
53 In relation to the quality of the evidence necessary to sustain a claim for privilege, a passage in the reasons of Brennan CJ in Commissioner of Australian Federal Police v Propend Finance Pty Ltd [1997] HCA 3; (1997) 188 CLR 501 at 513-4 has been influential:
When a claim of privilege attaching to a document seized under a warrant comes to be determined judicially, the court must ascertain for itself whether the document was brought into existence solely for a privilege purpose … In determining the claim of privilege, the court is not reviewing judicially an executive action but is determining a distinct controversy between the person who seeks to inspect the seized document and the person who seeks to maintain its immunity from inspection on the ground of legal professional privilege. To determine that controversy, the court must act upon admissible evidence, not upon hearsay.
54 In Hancock v Rinehart (Privilege) [2016] NSWSC 12, Brereton J relied on Propend and other authorities when saying:
[7] To sustain a claim of privilege, the claimant must not merely assert it; but must prove the facts that establish that it is properly made. Thus a mere sworn assertion that the documents are privileged does not suffice, because it is an inadmissible assertion of law; the claimant must set out the facts from which the court can see that the assertion is rightly made, or in other words "expose ... facts from which the [court] would have been able to make an informed decision as to whether the claim was supportable". The evidence must reveal the relevant characteristics of each document in respect of which privilege is claimed, and must do so by admissible direct evidence, not hearsay.
(Citations omitted)
55 Later, at [35], Brereton J stated his conclusion that:
(2) A claim for privilege must be made on sworn direct evidence - not inadmissible hearsay or opinion - proving the facts on which the claim is founded. This is unaffected by the court's discretionary power to require production in order to enable inspection for the purpose of adjudicating the claim, which exists to enable a claim for privilege to be scrutinised, not to enable it to be proved. No party - least of all the party claiming privilege - may insist that the court inspect the documents.
(Emphasis added)
56 Brereton J elaborated his view that the Court's power to inspect the document is not to facilitate proof by a claimant of facts required to sustain a claim for privilege but to provide a means of enabling that claim to be scrutinised and tested. That discussion included the following:
[32] [T]he essential issue on a claim for privilege is the purpose for which the document or communication in question was made. As that involves ascertaining the purpose of a person, the best direct evidence will be that given by the person whose purpose is in question. While purpose may be inferred from the document, direct evidence of it can be given by the person whose purpose it is. While the documents themselves may well illuminate the purpose for which they were created, to allow them to be used as evidence - let alone the sole evidence - in support of a claim for privilege, would be contrary to well-established practice. It would also be grossly unfair to the other party: if the only evidence of purpose is to be inferred from the document itself, the party seeking access is deprived of any opportunity to test the asserted purpose, which would defeat rather than promote the intent of enabling claims to be tested and scrutinised …
[33] The unsatisfactory features of presenting the court with a bundle of documents and asking it to rule on a claim of privilege have been the subject of comment on many occasions. …
[34] [I]n my view, such an approach is not merely unsatisfactory, but impermissible in principle. Whether the creature of judicial decision or, as I think more properly, rules of court, the court's power to inspect documents - and to require their production for that limited purpose - was a response to the potential injustice in treating the claimant's oath as conclusive. The power was not intended to detract from the requirement that a person claiming privilege prove, by admissible evidence, the grounds of the claim. While it is clear that the court may now require a document the subject of a claim of privilege to be produced so that it may inspect it for the purpose of ruling on the claim, that is quite a different notion from permitting a person claiming privilege to sustain the claim by adducing no testimonial evidence but asking the court to inspect the documents. …
(Citations omitted)
57 On the appeal, the New South Wales Court of Appeal agreed with the reasons of Brereton J at first instance: Rinehart v Rinehart [2016] NSWCA 58 at [29]-[31]. The Court added:
[31] … The course proposed by Gina gives rise to ample scope for unfairness to all parties in that course, but especially unfairness to those seeking access. If the course proposed by Gina were followed, they would not be able to be heard effectively against such submissions as are put. That is not to deny that there may be occasions when it is appropriate for a court itself to inspect documents in order to resolve a contested claim of privilege, although, as the primary judge said, the unsatisfactory nature of that course has been remarked upon on many occasions. Much will depend on whether all parties consent to that course, the nature of the documents and the magnitude of the dispute.
[32] The unfairness is manifest once the question of an appeal is considered. The first difficulty is in the formulation of reasons. Irrespective of whether the court finds in favour of or against the claim of privilege, the litigants are at least entitled to ask for reasons. Irrespective of the outcome, it will be difficult to supply reasons which do not disclose the privileged material relied upon.
58 These decisions in the Rinehart litigation have been followed in other jurisdictions: Lawrie v Carey DCM [2016] NTSC 23; Mortgage Results Pty Ltd v Millsave Holdings Pty Ltd (Legal Privilege) [2017] VSC 704.
59 There are some authorities which suggest that, on an interlocutory application concerning a claim for privilege, the standard of the evidence required may not be as high as that stated by Brennan CJ in Propend. See, for example, Re Southland Coal Pty Ltd [2006] NSWSC 899 at [26] and Tavcol Pty Ltd v Valbeet Pty Ltd [2016] NSWSC 1002, at [38].
60 In support of their claim of privilege, NRFA had relied upon the verification affidavit made by Mr Cash and on one of the affidavits made by Mr Toemoe on 5 December 2018. It is apparent that the primary Judge did not regard this evidence as very satisfactory. Her Honour said that the description of the documents for which privilege was claimed contained in a revised list provided to Mr Martin on 19 October 2018 "do not greatly assist with the task of assessing the privilege claim", at [101]. Her Honour elaborated that view in [102]:
I find the evidence of Mr Cash to be lacking in factual detail. He goes no further than to globally describe all of the documents in Part 3 and all of the redacted portions of the documents in Part 4 by reciting a verbal formulae. There is no evidence as to the enquiries Mr Cash may have undertaken to satisfy himself of the facts necessary to support the claim of privilege. His conclusions are globally stated in that they do not identify which senders or recipients of the communications are lawyers, and which senders or recipients are clients. Nor does Mr Cash identify which documents came into existence for the purpose of pending or anticipated legal proceedings. It may be that Mr Cash drew inferences from the documents themselves, without further enquiry. The Court cannot know. The underlying facts supporting his conclusions are not stated.
61 With respect to Mr Toemoe, the primary Judge noted that he had had the conduct of the proceedings on behalf of NRFA only since 10 October 2018, at [103]. Her Honour accepted that Mr Toemoe had directed a solicitor within KWM to undertake an assessment of the claims for privilege made by NRFA and to bring to his attention any documents which "warranted closer scrutiny", at [108]. The primary Judge found that that review had not extended beyond an inspection of the documents themselves. It seems that, on the basis of her Honour's findings, and without her own inspection of the documents, NRFA may not have sustained the claim of privilege.
62 Ordinarily, it would rare for there to be a grant of leave to appeal against a judge's decision to inspect the documents which are the subject of a disputed claim for privilege. That is especially so having regard to the well-known statement of Stephen, Mason and Murphy JJ in Grant v Downs [1976] HCA 63; (1976) 135 CLR 674 at 689 to the effect that the power to inspect documents may have been exercised too sparingly in the past.
63 However, in the present case, three matters incline me to the view that leave should be granted with respect to both Grounds 5 and Ground 6. The first is that the primary Judge appears to have regarded the evidence of Mr Cash and Mr Toemoe as being insufficient to sustain the claims for privilege. The second is that, in making the decision to inspect, the Judge did not refer to the principles discussed by Brennan CJ in Propend or by Brereton J in Hancock v Rinehart (Privilege). The third is that the consideration of these two matters appears, on my understanding, to be linked to the subject matter of Mr Martin's proposed Ground 7, to which I refer next.
64 Accordingly, there will be a grant of leave to appeal with respect to Grounds 5 and 6.