Is "proportionality" an element of the defence?
29 Mr McHugh submitted that there is no separate requirement of the defence of reply to attack that the reply should be "proportionate" to the attack. He submitted that, provided the publication sued on is a response to the attack, questions of the language used and the "proportionality" of the response go only to the question of malice. Thus in Adam v Ward at 330, Lord Dunedin said:
"I would particularly cite the words of the judgment of the Privy Council of the latter case (3): "Some expressions here used undoubtedly go beyond what was necessary for self-defence, but it does not, therefore, follow that they afford evidence of malice for a jury. To submit the language of privileged communications to a strict scrutiny, and to hold all excess beyond the absolute exigency of the occasion to be evidence of malice would in effect greatly limit, if not altogether defeat, that protection which the law throws over privileged communications." This disposes of the first passage pointed out as defamatory."
30 Mr McHugh also relied on the statement of Starke J in Penton v Calwell (1945) 70 CLR 219 at 250, which he submitted was consistent with the analysis that any excess of language is a matter going to malice:
"In the main, the words used by the defendant cannot, as a matter of law, be classed as irrelevant to the accusations made. Great latitude must be allowed to a person defending himself, his interests and rights against attacks and accusations made against him, and, however violent or strong his language may be, still it is for the jury to determine whether he could not honestly and reasonably have believed them to be necessary for the vindication of himself, his rights and interests [citations omitted]."
31 As to the permissible content of the response, Mr McHugh submitted that the following principles apply. First, as acknowledged in the passage from Penton v Calwell just cited, the person attacked may couch his response in broad terms.
32 Secondly, Mr McHugh submitted that the response can extend to a counter-attack. In support of that contention, Mr McHugh cited the judgment of Dixon J (as his Honour then was) in Penton v Calwell at 233 where his Honour stated that the purpose of the privilege is to enable the defendant on his part "freely to submit his answer, whether it be strictly defensive or be by way of counter-attack, to the public to whom the plaintiff has appealed or before whom the plaintiff has attacked the defendant".
33 The judgment of Dixon J was the judgment at first instance in Penton v Calwell. Mr McHugh did not suggest that the passage relied upon had been approved on appeal, but noted that it was recently cited (with apparent approval) in Bass by Spigelman CJ at [14].
34 Of course, any counter-attack would be protected only if it were germane to the rebuttal of the attack. Mr McHugh did not suggest otherwise.
35 Separately, Mr McHugh relied on the following extract from the speech of Lord Oaksey in Turner v Metro-Goldwyn-Mayer Pictures Ltd [1950] 1 All ER 449 at 471:
"If you are attacked with a deadly weapon you can defend yourself with a deadly weapon or any other weapon which may protect your life. The law does not concern itself with niceties in such matters. If you are attacked by a prize-fighter you are not bound to adhere to the Queensbury rules in your defence".
36 As noted by Mr Evatt, that proposition must be read with the qualification expressed at the outset of the relevant paragraph, where his Lordship drew an analogy between the criminal law of self-defence and a man's right to defend himself against written or verbal attacks. His Lordship said "in both cases he is entitled, if he can, to defend himself effectively, and he only loses the protection of the law if he goes beyond defence and proceeds to offence" (my emphasis).
37 Mr Evatt submitted that Mr McHugh's analysis is contrary to common sense and authority. He contended that there is authority which establishes, as an element of the defence, that the reply must bear some proportionality to the attack. I return to consider the cases relied upon by Mr Evatt below.
38 A difficulty in resolving those competing contentions is that "proportionality" is a term of indeterminate content and reference. It may be understood to refer to the content of the response, which would stray into notions of reasonableness, relevance and the distinction between defence, counter-attack and offence. Equally, it may be understood to comprehend tone or choice of words.
39 To the extent that it refers to the tone or language of the relevant communication, Mr McHugh's analysis finds some support in the recent decision of this Court in Megna v Marshall [2010] NSWSC 686 (decided after the hearing of these proceedings). However, the approach contended for by Mr McHugh is not entirely consistent with that decision.
40 In Megna, Simpson J undertook a careful analysis of the elements of the defence of qualified privilege. On the strength of a detailed consideration of the relevant authorities, her Honour concluded (at [50]) that the determination of the defence at common law involves three strands of inquiry. The first two relate to matters which must be established by the defendant. They are, first, whether an occasion of qualified privilege exists and, secondly, whether the content of the particular communication in question was "relevant, germane, or sufficiently connected to that occasion" or to the subject matter of the communication.
41 The relevance requirement was expressly acknowledged in the context of a discussion of reply to attack in the joint judgment of Latham CJ and Williams J in Penton v Calwell at 242.7 as follows:
"This defence depends upon proof of the existence of a privileged occasion. If the occasion exists, the communication, though defamatory, is protected if it is relevant to the matter which gives rise to the privileged occasion " (my emphasis).
42 The third strand of inquiry identified by Simpson J in Megna relates to a matter in respect of which the plaintiff bears the onus of proof, namely whether the defendant misused the occasion for an improper purpose (malice).
43 Mr McHugh's identification of the issues for my determination differed to the extent that he characterised the notion of "requisite connection" (the expression used by Spigelman CJ in Bass at [3]) as an aspect of the determination whether an occasion exists (defendant's outline of argument at paragraph 31). Simpson J would characterise that as a separate question, namely whether the particular communication had the requisite connection or degree of relevance to the subject matter giving rise to the occasion so as to enjoy its protection. Lest it be thought the distinction is excessively subtle, her Honour's conclusions as to the different publications sued on in Megna (some defensible, some not) illustrate the practical importance of identifying, first, the occasion for granting protection and, separately, whether a particular communication was made within the scope of that occasion.
44 Importantly for present purposes, Simpson J considered, against the "three strands of inquiry" analysis, whether the privilege may be lost (apart from by reason of malice) as a result of the nature of the language used. Her Honour concluded (at [129]) that the tone of a publication is not relevant to the first two strands of the inquiry; that is to say, the tone is "a matter not available to be taken into account in determining whether a communication was published on an occasion of qualified privilege, or was relevant to a privileged occasion".
45 However, her Honour noted at [118] (in the context of a consideration of the decisions at first instance and in the Court of Appeal in Assaf v Skalkos: [2000] NSWSC 418, Carruthers AJ; Skalkos v Assaf [2002] NSWCA 14):
"It must be remembered that a communication, to have the protection of the defence, must have some content - either factual information or opinion. There may be cases in which the vituperative tone so masks or clouds or overrides any real communication of fact or opinion that there is no communication other than of vitriol, abuse, or vituperation. It may be that that is what Carruthers AJ had in mind, what Giles JA had in mind at [130], and what Mason P had in mind."
46 The reference to "what Giles JA had in mind at [130]" is to the following passage of his Honour's judgment in the appeal in Skalkos v Assaf:
"It must be remembered that the inquiry into relevance of the defamatory imputation to the occasion, whether expressed in those terms or in the various other ways to be found in the cases, is intended to distinguish between an imputation which should not bring liability for defamation and one which should. As in so many other areas of the law, the function of attribution of legal responsibility necessarily affects the inquiry … The inquiry is not a mechanical application of a form of words. Something may be privileged although untrue, irrational, or intemperately expressed. But that it is untrue, irrational or intemperately expressed may warrant the conclusion, or contribute to the conclusion, that the protection of the privilege should not be afforded. Absence of malice does not mean that all that is published is within the occasion of privilege."
47 As submitted by Mr Evatt, however, there is some authority for importing a requirement of reasonableness or "proportionality" at the second stage of the inquiry. Thus in Trad v Harbour Radio Pty Limited [2009] NSWSC 750, McClellan CJ at CL said (at [135]): "there must be some proportionality between the attack and the response".
48 The chapter on qualified privilege at common law in Gatley, 11th ed. at 14.1, p. 437 opens with a statement that assumes the existence of such a requirement. There it is stated that a defamatory statement published on an occasion of qualified privilege is protected if the statement was "fairly warranted by the occasion (that is to say, was reasonably necessary to achieve the purpose for which the law grants the privilege)".
49 The origin of the formulation "fairly warranted by the occasion" is found in the well-known statement of Baron Parke in Toogood v Spyring (1834) 1 Cr M & R 181 at 193, which is traditionally acknowledged to be the starting point in any attempt to understand the defence of qualified privilege at common law:
"In general, an action lies for the malicious publication of statements which are false in fact, and injurious to the character of another (within the well-known limits as to verbal slander), and the law considers such publication as malicious, unless it is fairly made by a person in the discharge of some public or private duty, whether legal or moral, or in the conduct of his own affairs, in matters where his interest is concerned. In such cases, the occasion prevents the inference of malice, which the law draws from unauthorized communications, and affords a qualified defence depending upon the absence of actual malice. If fairly warranted by any reasonable occasion or exigency, and honestly made , such communications are protected for the common convenience and welfare of society; and the law has not restricted the right to make them within any narrow limits" (my emphasis).
50 The words "fairly warranted by any reasonable occasion or exigency" have been echoed on many occasions, but perhaps not used in a consistent sense. One theme that does emerge is that, in the context of reply to attack, there is greater latitude as to what is permissible, as demonstrated by the authorities relied upon by Mr McHugh.
51 Mr Evatt referred me to two English decisions that touch on this question. The first was the decision of the Court of Appeal in Nigel Watts v Times Newspapers Ltd [1995] EWCA Civ 45. That was a case in which an article alleging plagiarism against an author, Mr Nigel Watts, was accompanied by a photograph of a different Mr Nigel Watts, a property developer. The newspaper later published an apology to the property developer which repeated the terms of the original defamation. The other Mr Nigel Watts (the author) sued on the apology. The Court of Appeal dismissed an appeal by the newspaper against a preliminary ruling that the apology was not protected by qualified privilege. The basis for the ruling was that the publication of an apology that repeated the initial defamation was not "fairly warranted by any reasonable occasion or exigency" (at [55] per Lord Justice Hirst).
52 The decision in Watts did not turn on any question of "proportionality" and did not ultimately support Mr Evatt's submission. I accept that it provides some support for a test (derived from Toogood v Spyring) which asks whether the publication was "fairly warranted by any reasonable occasion or exigency". However, the decision ultimately turned on the fundamental difference between the position of Mr Watts the property developer (who was entitled to demand the publication of an apology in response to the unwarranted attack on him) and the position of the newspaper (which was not the victim but indeed the perpetrator of the original attack, by reason of its mistaken use of the wrong photograph). Separately, the judgment acknowledged the entitlement of Mr Watts to rebut the original attack "with ample scope to defend himself if necessary by a counter attack on his accuser, so long as he did not include wholly unconnected and extraneous matter".
53 The second decision relied upon by Mr Evatt was more helpful. It was the decision of the Queen's Bench Division in Hamilton v Clifford [2004] EWHC 1542 QB. Mr Hamilton was a former Member of Parliament. He and his wife became embroiled in "a flurry of journalistic activity" when they were accused of having encouraged and perhaps participated in the rape of a woman. It subsequently emerged that the whole event was fantasy. The woman in question was ultimately convicted in respect of her false complaint and sentenced to three years imprisonment.
54 A publicist who made a series of statements about the matter, including reference to the alleged involvement of Mr and Mrs Hamilton, sought to defend their defamation action against him on a number of grounds including the defence of reply to attack. The alleged attacks were statements made by Mr and Mrs Hamilton as they left Barkingside Police Station after having been questioned by police in relation to the rape allegations. Mr Hamilton allegedly said: "the whole thing is a monstrous lie…as the name of Max Clifford has been mentioned, this is the man that brought us 'Freddy Star ate my Hamster'. There is absolutely no truth in it". Mrs Hamilton was alleged to have said: "the allegations are a fabrication…can I remind you that Mr Clifford is employed by Mr Mohamed Fayed?" [whom Mr Hamilton had previously sued].
55 Although Mr Justice Eady declined to strike out the defence, the significance of the judgment for present purposes is that his Honour clearly considered it would be necessary for Mr Clifford to establish that his response was "necessary and proportionate" to the allegations made against him in the remarks of Mr and Mrs Hamilton (at [69]).
56 The fact that cogent authority can be found to support such opposed statements of principle is unsettling. I remain in some doubt as to whether (malice aside) a response that is wholly disproportionate to an attack by reason of the tone and language used is a communication that should properly enjoy the protection of the relevant occasion (the occasion of qualified privilege created by the launching of the original attack). It is difficult to see how the requirement for the defendant to establish that the response was "fairly warranted" by the attack could be satisfied in that circumstance.
57 However, the analysis of Simpson J in Megna provides compelling support for the contrary view; that excessive language and intemperance of tone should not ordinarily be brought to bear in determining the second strand of the inquiry unless they inform the issue of relevance. It is convenient, for present purposes, to proceed on that premise.
58 As Simpson J explained, however, there must be a communication that is sufficiently connected to the occasion or the subject matter in question. If vituperation and invective are really all there is in the matter complained of, there may be no relevant communication of fact or opinion on the privileged occasion in question.
59 Assuming the correctness of the analysis of Simpson J in Megna, the success of the defence raised in the present proceedings should be determined in accordance with the following principles.
60 There are two matters that must be established by 2UE. The first is that Mr Chesterton's remarks amounted to an attack upon Mr Laws such as to warrant recognising the existence of an occasion of qualified privilege. The second is that the particular communication made by Mr Laws (the broadcast of the matter complained of) was "relevant, germane, or sufficiently connected to that occasion" (adopting the words of Simpson J in Megna).
61 I do not think there is any difference in substance between that formulation and the term "requisite connection" adopted by Spigelman CJ in Bass favoured by Mr McHugh. The whole of the relevant passage from Bass is as follows:
"2 As to the first issue, concerning the existence of qualified privilege in the form of a reply to an attack, I agree with Handley JA. Mr T Molomby SC, who appeared for the Appellant, identified two matters which he submitted were such as to deprive the Respondent of the ability to rely on this form of privilege about which I wish to make additional observations.
3 The first was that the interviewee who replied to the attack, and whose reply was published, did not at the time of the reply have available to him the full contents of the attack to which he purported to reply. In my opinion, this does not deprive a defendant of the ability to rely on the defence where the reply has the requisite connection to the attack, e.g. that it was 'relevant' to the attack (see e.g. Loveday v Sun Newspapers Limited [1938] HCA 28; (1938) 59 CLR 503 at 516.1 per Starke J), or where the reply could 'justify or explain the course taken or remove or mitigate the effect of the attack'" (at 519.2 per Dixon J).