The privilege objection
11So far as the privilege objection is concerned, the Applicants say that the orders compel production of privileged documents, and submit that orders that have that effect should not be made, at least ex parte. For this proposition, the principal authority relied upon was the judgment of the Court of Appeal in Meteyard v Love [2005] NSWCA 444; (2005) 65 NSWLR 36. Beazley and Santow JJA relevantly agreed with Basten J, who dealt with the relevant issues (at [130] - [133]), as follows:
[130] The consequences of that conclusion must be assessed by reference to the statutory scheme under which orders for production were made. Part 36, r 13 [of (NSW) Supreme Court Rules 1970] applies both to orders for production and production on notice under Pt 36, r 16. The latter rule provides that a party served with a notice "shall, unless the court otherwise orders, produce the document or thing in accordance with the notice": r 16(1). The effect of r 13(2) is, it would appear, that no order relieving the party under r 16 is necessary: rather, where privilege is invoked, the rule "shall not require" production of the document, until the Court has directed that production "shall not be prevented" by subr 13(2). Whether a similar approach is to be adopted in relation to an order for production under r 12 is less clear. Subrule 13(3) does not say that in such a case the order "shall not require" production of a privileged document, but rather that the Court "shall not compel" such production, unless and until it directs that the production shall not be prevented. On one construction, the order is unenforceable, pending further consideration by the Court; on the other construction, an order should not be made in the first place seeking to compel production of documents the subject of privilege.
[131] In Re BPTC Ltd (In Liq) (No 5) (1993) [10 ACSR 756; 11 ACLC 734] (at 759; 736), Bryson J adverted to the nature of these difficulties, in practical terms. His Honour was concerned in particular in that case with a complaint as to the excessive scope of the orders for production, made under Pt 36, r 12. After referring to the need for affidavit evidence showing the ground on which the order should be made, his Honour continued (at 759; 736):
"... and further there will be instances where it is not appropriate to act ex parte but the registrar or other judicial officer should require notice of motion to be given to the party to be affected. More formal procedure would be appropriate where the call for documents is very extensive and compliance might be difficult. There would also be instances where it can be foreseen that there is likely to be some claim for public interest privilege or legal professional privilege, or other dispute."
These comments are appropriate in the present case.
[132] Once it is understood that the operation of Pt 36, r 13, in relation to an order for production under r 12, precludes the Court from compelling production, even to itself, of a document subject to client legal privilege, an order having that effect should not have been made. Of course, it is not possible for this Court to say that particular documents are the subject of privilege: that issue has yet to be litigated. The mechanism for addressing these issues is by no means clear. In the present case the procedural issues have been blurred by the fact that each summons and order for production was made by the Deputy Registrar in the one proceeding and each was challenged by way of "interlocutory process" prescribed with respect to an examination summons only. Given the importance of the issues raised by client legal privilege, and the absence of a clear procedure by which to raise the issues, in my view the preferable conclusion is that an order for production under Pt 36, r 12 should not be made ex parte where it may be anticipated that such questions will arise or, in the alternative, the order should make express exception for documents subject to privilege. The fact that a claim for privilege was likely to be raised in the present circumstances was known to the opponents when they sought the orders and should, in accordance with the obligations of a party seeking ex parte relief, have been disclosed to the Deputy Registrar. Whether or not those possibilities were disclosed is not known.
[133] In my view, the orders for production should be set aside on the basis that it has been established that they are likely to extend to documents which cannot properly be the subject of an order for production, which documents are likely to form a significant proportion of those subject to the order. It was not suggested by the opponents that the categories of documents subject to privilege could readily be severed, or that the orders could be saved in part if the conclusion of the Court favoured the submissions of the claimants. Accordingly the orders for production should be set aside.
12It will be seen that, in dealing with the then provisions of Part 36 Rule 13 and Rule 16 of the (NSW) Supreme Court Rules 1970, his Honour expressed the view that on one construction the order was unenforceable pending further consideration by the Court, and on the other an order should not be made in the first place seeking to compel production of documents the subject of privilege. It seems that, faced with the rules as they then were, to which I shall come, his Honour may have favoured the second construction; so much is suggested by the first sentence of paragraph 132 of his Honour's judgment. It is, however, to be noted that in paragraph 133, his Honour seems to have considered it relevant that this was a case in which documents that were likely to be the subject of a claim for privilege were likely to form "a significant proportion" of those the subject of the order. All this material suggests that what his Honour was addressing in paragraphs 132 and 133 were not questions of power or of law, but as to how a discretion ought generally appropriately be exercised.
13It is in that light relevant to note the terms of the relevant rules when so considered by his Honour. They are set out in paragraph 76 of his Honour's judgment:
36.13 Privilege
13(1) This rule applies where:
(a) the Court, by subpoena or otherwise, orders any person to produce any document to;
(b) a party is required by a notice served under rule 16(1) to produce any document to; or
(c) a question is put to a person in the course of examination before,
the Court or a judge or any officer of the Court, or any examiner, referee, arbitrator or other person authorised to receive evidence and neither Part 3.10 of the Evidence Act nor Part 3.10 of the Evidence Act 1995 of the Commonwealth is applicable.
(2) The Court shall not compel, and rule 16 shall not require, production of a document or an answer to a question, unless and until the Court directs that the production or answer shall not be prevented by this sub-rule:
(a) over the objection of a person if evidence of the document, or of an answer to the question, could not be adduced in the proceedings over the objection of the person, by virtue of the operation of Part 3.10 Division 1 of the Evidence Act;
... .
14That rule has been replaced by the combination of CPA, s 68, and UCPR, r 1.9. Section 68 is expressed to be subject to the Rules of Court. UCPR, r 1.9, is as follows:
1.9 Objections to production of documents and answering of questions founded on privilege
(1) This rule applies in the following circumstances:
(a) if the court orders a person, by subpoena or otherwise, to produce a document to the court or to an authorised officer,
(b) if a party requires another party, by notice under rule 34.1, to produce a document to the court or to an authorised officer,
(c) if a question is put to a person in the course of an examination before the court or an authorised officer.
(2) [...]
(3) A person may object to producing a document on the ground that the document is a privileged document or to answering a question on the ground that the answer would disclose privileged information.
(4) A person objecting under subrule (3) may not be compelled to produce the document, or to answer the question, unless and until the objection is overruled.
(5) For the purpose of ruling on the objection:
(a) evidence in relation to the claim of privilege may be received from any person, by affidavit or otherwise, and
(b) cross-examination may be permitted on any affidavit used, and
(c) in the case of an objection to the production of a document, the person objecting may be compelled to produce the document.
(6) This rule does not affect any law that authorises or requires a person to withhold a document, or to refuse to answer a question, on the ground that producing the document, or answering the question, would be injurious to the public interest.
15In the passage of Basten J's judgment, which I have set out above, his Honour said in paragraph 132 "the mechanism for addressing these issues is by no means clear". It will be seen that r 1.9 differs from former r 36.13, at least in the relevant respect that subrule (3) has been inserted before subrule (4), and the insertion in subrule (4) of the words "objecting under subrule (3)" to my mind greatly clarifies the procedure to be followed in this respect, in a way which may not have been so clear at the time of Meteyard. It reinforces the view that there is a difference between the idea of being "compelled" to produce the document referred to in subrule (4), and being "ordered" to produce a document under subrule (1)(a).
16It seems to me on the face of r 1.9, that the procedure is quite clear: the Court may order a person to produce a document, as contemplated by subrule (1); a person who wishes to claim privilege may object to producing the document under subrule (3); once that objection is taken, subrule (4) makes clear there is no compulsion to produce the document, unless and until the objection is overruled.
17That this is the correct approach is reinforced, first, by the fact that this is the way in which Courts have for centuries dealt with subpoenas for production - namely, that following the issue of a subpoena for production it has not been regarded as a proper objection to a subpoena for production that some of the documents for which it calls may be privileged, and that the proper course is to claim privilege upon production of the documents to court and have the Court rule on the claim - and, secondly, by the practical consideration that if it were necessary to "carve out" from subpoenas for production, orders for production and the like, documents that may be the subject of a claim for privilege, there would be difficulty and delay in having those documents brought to Court, and it would tend to delegate to the recipient of the subpoena or order for production the primary right to decide whether to produce the documents at all, by deciding to assert a claim of privilege.
18In my view, the structure of r 1.9 makes clear that an objection under subrule (3) assumes that an order has been made that catches documents that may be subject of a claim for privilege. In other words, it assumes that such orders may be made without excluding from their scope documents potentially the subject of a claim for privilege.
19These issues have been addressed in a number of cases that have followed Meteyard. In Hypec Electronics Pty Ltd (In Liq) [2006] NSWSC 704, Barrett J, as his Honour then was, after reference to Meteyard, said (at [5]):
It is thus made clear that the Court should not in cases of apprehended claims for protection by way of legal professional privilege, simply make an order for production ex parte on the application of the liquidator. Rather, it must put in place some mechanism whereby privilege claims may be brought forward and examined before any compulsion is exerted by means of an order of the Court.
In my view, that mechanism is now clearly provided by r 1.9.
20As Mr Golledge for the Applicants conceded, at least if this were a question of power rather than one of discretion, it could not as a matter of law make any difference whether the order is made ex parte or on notice.
21In Re Southland Coal Pty Ltd (recs and mngrs appt) (in liq) [2006] NSWSC 184; (2006) 58 ACSR 113, Austin J took a view closer to that to which I adhere (at [80]):
[80] An order framed so as to exclude documents that the producing party would be entitled to withhold as privileged was made in Re Equiticorp Finance Ltd; Ex parte Brock (1992) 6 ACSR 725 and Basten JA contemplated the possibility of such an order in Meteyard: at [133]. But the Court of Appeal's reasoning does not mean that in every case, the order for production must contain such an express exclusion. The Uniform Civil Procedure Rules set out a procedure by which claims for privilege are to be made. As I have explained, the person to whom the order is directed may object to producing the document and once the objection is made, cannot be compelled to do so unless and until the objection is overruled. That is the position as a matter of law. If orders were made expressly excluding documents subject to client legal privilege, there would be a risk that the persons to whom the orders were directed would regard themselves as exonerated from taking any co-operative steps with respect to documents that they regarded as privileged, such [as] preparing lists or even embarking on any process of review. At least in some cases, it may be preferable simply to add a note to the orders drawing the reader's attention to the relevant rules. But in my view it is unnecessary to take any such step in a fully contested inter partes matter where the parties are legally represented, and I do not regard the Court of Appeal as suggesting otherwise. In such a case an acceptable course, in accordance with the rules, is to make unqualified orders for production coupled with liberty to apply, which may be exercised for the purpose of giving directions designed to bring forward contested privilege claims for resolution, once specific documents have been identified and particular claims for privilege have been made in respect of those identified documents.
22In Nielsen & Moller Autoglass (NSW) Pty Ltd (In Liq) [2008] NSWSC 1197, Hammerschlag J was faced with the argument that r 1.9 made a difference. His Honour held that in that case it did not, but in doing so referred to a "prefatory note" that had been included in the relevant order which stated: "Note: if privilege is claimed, the records are to be separately listed and described with the relevant point of privilege claimed noted and produced in a separate sealed envelope marked 'privileged documents'." His Honour said (at [83] - [84]):
[83] The Orders made here compel production of privileged material irrespective of whether there is an objection based on privilege and continue to do so even if there is an objection.
[84] The prefatory note to the Orders has the specific object of facilitating production even though privilege is claimed, directly contrary to UCPR Pt 1 r 1.9(4).
[85] The reasoning of Basten JA that orders for production such as the present Orders should not be made ex parte where it may be anticipated that questions of privilege will arise or there should be exception for documents subject to privilege applies with no less force to the present case than it did in the circumstances considered by his Honour.
[86] Accordingly the Orders should not have been made.
23To my mind, what his Honour was saying was that, because the prefatory note made clear that production was required even though privilege was claimed, it was inconsistent with r 1.9(4). The current order does not have that vice; it contains no such prefatory note, nor anything like it. It leaves r 1.9 to operate unaffected by any contrary provision in the order.
24For those reasons, it seems to me that in the light of r 1.9(4), the inclusion in orders for production, and for that matter in subpoenas for production, of complex carve-outs and procedures for the resolution of disputes as to privilege is unnecessary; those procedures are covered by r 1.9.
25I therefore do not accept, as a matter of principle, the privilege objection.
26Even if one were to apply the law as it were before the introduction of r 1.9, I would not be persuaded that this was a case in which the same result as prevailed in Meteyard should obtain. That is because it is not shown that the order is likely to catch documents which will be the subject of a claim for privilege, or at least that such documents will constitute a "substantial proportion" of those caught by the order. The only class of documents that might include documents the subject of a privilege claim are those in paragraph 10 of the order. While those documents might conceivably be privileged in the hands of Triflex, there is no reason to suppose that the liquidator will in fact advance a claim for privilege in respect of them. In the hands of the applicants, the documents are said to be the subject of a common interest privilege, but in the absence of a claim by the liquidator, it does not seem to me that the applicants would have any basis to sustain a claim.
27Accordingly, I reject the first ground of objection and turn to the second, which is what is said to be the generally oppressive nature of the order for production.