There is at least one case in which a judge has called a witness in reliance upon the "wide power" of that section: Milano Investments Pty Ltd v Group Developers Pty Ltd (unreported, NSW SC, Young J, 13 May 1997). For my own part, I do not consider that the powers conferred by the section extend so far. The powers relate to the questioning of witnesses. The statutory definition of the term, 'witness', is merely inclusive and does not assist for present purposes. It seems to me that before a person is called to give evidence, he or she cannot be said to be a witness. In my opinion, the powers conferred by s 26 extend only to those persons who have been called to give evidence by a party or by the judge in the exercise of a power at general law or under another statute.
49 The appellant also relied upon the "statutory powers" of the Federal Magistrates Court. I assume that the specific power relied upon is that contained in r 15.04 of the Federal Magistrates Court Rules 2001 (Cth), which provides:
"15.04 Court may call evidence
(1) The Court may of its own motion call any person as a witness in proceedings and give directions as to examination and cross‑examination.
(2) The Court may order a party to pay the expenses of the attendance of the witness.
Note The Court may put a question to any witness to resolve or expedite proceedings: see section 63 of the Act."
50 No submissions were made as to the scope of the discretion in this rule. It appeared from the way in which the submissions proceeded that the appellant and respondent were agreed that the discretion was exercisable only in the exceptional circumstances recognised at common law. The logic of such an assumption is not obvious. The rule, the construction of which "is guided by the authorities regarding statutes" (Parks Holdings Pty Ltd v Chief Executive Officer of Customs [2004] FCA 820 at [87] per Goldberg J), must be interpreted in context having regard to both the rules and the Federal Magistrates Act 1999 (Cth), which authorises the rules: s 81. There is nothing in the language of the rule to suggest that it was intended to confer any narrower power than that at common law. In fact, it might have been intended simply to state expressly the general law power that the Court enjoys as part of its implied or incidental powers to supervise its own proceedings.
51 On the other hand, the informality of proceedings contemplated by the scheme of the Federal Magistrates Act 1999 (Cth) might suggest that the rule was intended to relax the strict common law position and give to Federal Magistrates greater freedom to call witnesses of their own motion. Such a construction may raise questions as to the validity of the rule on the ground that it is beyond the competence of the Parliament to deprive a Chapter III court, being a repository of the judicial power of the Commonwealth, of its essential character and the rule-making power conferred by s 81 of the Federal Magistrates Act 1999 (Cth) could not, therefore, authorise a rule in the observance of which the Court would depart from its essential character and function. However, it is unnecessary to consider that issue because, as I have said, the submissions of the parties proceeded on the basis that the power of the Federal Magistrates Court to call a witness, even insofar as it derived from r 15.04, was governed by the common law principles.
52 It was correctly accepted by the parties that at common law the exercise of the power is reserved only for the most exceptional cases and that it would be regarded as highly unusual for a judge to call a witness in a proceeding. The reasons why a judge ordinarily ought not call a witness of his or her own motion are well-established. In Jones v National Coal Board [1957] 2 QB 55 at 63 Denning, Romer and Parker LJJ said:
"In the system of trial which we have evolved in this country, the judge sits to hear and determine the issues raised by the parties, not to conduct an investigation or examination on behalf of society at large, as happens, we believe, in some foreign countries."
Speaking in the context of a judge questioning a witness, Lord Greene MR said in Yuill v Yuill [1945] P 15 at 20 that "a judge who himself conducts the examination … descends into the arena and is liable to have his vision clouded by the dust of the conflict." Like questioning a witness, calling a witness also involves the judge in a descent into the arena.
53 Sometimes, the principles governing the power of a judge to call a witness are explained or justified by reference to an ideal of truth-ascertainment. The Court in Jones v National Coal Board (supra) at 63 said that "a judge is not a mere umpire … [h]is object, above all, is to find out the truth, and to do justice according to law" and, quoting Lord Eldon LC in Ex parte Lloyd (1822) Mont 70, that "truth is best discovered by powerful statements on both sides of the question" (See also Coulson v Disborough [1894] 2 QB 316 at 318 per Lord Esher MR and at 318-19 per A L Smith LJ). The debate about whether one of the adversarial and inquisitorial systems is more apt to ascertain "the truth" in a matter is not, I think, to the point. The point to be noted is that, as Dawson J said in Whitehorn v The Queen (1983) 152 CLR 657 at 682 "[a] trial does not involve the pursuit of truth by any means". His Honour went on to say:
"The adversary system is the means adopted and the trial judge's role in that system is to hold the balance between the contending parties without himself taking part in their disputations. It is not an inquisitorial role in which he seeks himself to remedy the deficiencies in the case on either side. When a party's case is deficient the ordinary consequence is that it does not succeed."
The passage was endorsed unanimously by the High Court in R v Apostilides (1984) 154 CLR 563 at 576 as a reason supporting "the need for the extreme reluctance with which the trial judge should even consider usurping the responsibility of the parties with respect to the calling of witnesses". The idea of descending into the arena is no more than a colourful description of what occurs when the distinct and separate roles of judge and advocate are confused.
54 Crucially, this is a notion different from that of how best to ascertain truth. The propriety of a judge calling a witness is not, I think, to be analysed against some underlying assumption that the ascertainment of truth is the fundamental purpose of the judge. It is undeniable that the adversarial system values truth and that the ascertainment of the truth may well be an outcome of the functioning adversary system. But the system as a whole ought not to be confused with the judge, who plays only one role, albeit a critical one, in what is at least a tripartite system. The parties play the other critical roles. Without two parties and an independent and impartial judge, there is no adversary system. Therefore, rather than truth‑ ascertainment - or, as Dawson J put it, "the pursuit of truth by any means" - the law governing the power of a judge to call a witness is explicable by reference to the fundamental division between judge and advocate in the adversary system.
55 The role of the judge is to adjudicate the parties' controversy. It follows from the independence and impartiality required of the judge, that the creation of a controversy, or the redefinition of a controversy is no part of the judicial power. That may be a consequence of a judge calling a witness and, for that reason, it is usually impermissible for a judge to do so. The power to create and define a controversy belongs to the parties and their advocates. Their freedoms and responsibilities within their distinct roles are as important to the adversary system as the judge's and ought not, in the usual course, to be usurped. The undesirability of a judge calling a witness of his or her own motion can be cast in terms of "descending into the arena" or in terms of creating an apprehension of bias, but essentially what is at stake is the proper distinction between the judge and the parties which is contemplated by the adversary system.
56 In the same way as the general rule against a judge calling a witness is justified by the fundamental nature of the adversary system, so too are the exceptions to that rule. An analysis of the exceptional cases shows them to be instances where the judicial intervention was directed to preserving the adversarial system itself. Sometimes, in the authorities, the judicial intervention is justified as necessary in "the interests of justice". But those references to "the interests of justice" cannot mean to import idiosyncratic notions of fairness, but rather the inter partes justice which is institutionalised in the adversary system and the requirements of which are discovered according to the method of the common law. The inter partes conception of justice, which might also be described as a justice concerned with fair processes rather than outcomes perceived to be "fair", and which the common law embodies, was recognised by Rares J in Huang v University of New South Wales (No 3) (supra) at [28]:
"At the end of the day, if the absence of a witness occurs and this affects the quality of the evidence properly before the court, the result will still be fair as between the parties, if the judge acts on that limited material, even though it may be thought to be unsatisfactory. The latter, but not the former, consequence may be the fault of the parties in their selection of the evidence or it may be that the parties have each decided that the witness would be of no assistance."
The fairness of the trial process is ensured by proper participation in the trial by the parties and the judge. That is to say, when the distinct roles are being fulfilled, the adversary system can function as intended; when one or more roles is not being fulfilled, then there is a resulting deficiency which causes the system not to work as intended and which may require remedial action. The exceptional instances of judges calling witnesses are explicable as exceptional instances of judges being able to remedy the deficiency in a party's fulfilment of its role by the calling of a witness.
57 In Titheradge v The King (1917) 24 CLR 107 at 118 Isaacs and Rich JJ applied the decision of the English Court of Appeal in In re Enoch and Zaretzky, Bock & Co.'s Arbitration [1910] 1 KB 327. In that case, the Court held that a judge may not call a witness without the consent of both parties. Isaacs and Rich JJ considered the principle to be equally applicable in a criminal case. Barton J said that in a civil case, before the judge may call a witness, "there must either be the consent of the parties or an acquiescence on their part from which the strong inference is consent". Barton J also held that in a criminal trial, the accused must consent to the proposed course (at 117). In Shaw v The Queen (1952) 85 CLR 365 at 379, Dixon, McTiernan, Webb and Kitto JJ said that the Court had, in Titheradge v The King (supra) "denied the power", which decisions in England had recognised, allowing "the presiding judge at a criminal trial to call a witness if he thinks the imperative demands of justice require it."
58 Thus, the consent of the parties is one exception to the general prohibition against a judge calling a witness. There are various circumstances in which the parties may consent to the judge calling a witness. It may be, for example, that the parties desire a person to give evidence, but neither wishes to vouch for his credit. It may be that neither wishes to suffer the disadvantage of being unable to impeach in cross examination those aspects of the person's evidence detrimental to his case while having those aspects favourable to his case impeached by the other party. This exception appropriately respects the freedom which the adversary system accords to the parties.
59 The appellant took this Court to cases which, it was submitted, recognised the power to call a witness in circumstances where consent was absent. It is clear that in a criminal trial the power may be exercised even where consent is absent: R v Apostilides (supra) at 575. Whether the position is different for civil trials is an unresolved question. In Whitehorn v The Queen (supra) at 681, Dawson J expressed the view that the position in criminal trials was the same as that in civil trials, a position which his Honour considered required consent. Gibbs CJ and Brennan J expressly reserved their opinion in that respect and later, in R v Apostilides (supra), the Court rejected that consent was necessary, but limited its remarks to criminal trials. The opinion of Issacs and Rich JJ in Titheradge v The King (supra) on this point was strictly obiter dicta. More recent authorities suggest that even civil trials may admit of exceptions other than consent: Huang v University of New South Wales (No 3) (supra). In my view, there is no reason in principle why the position in a civil trial should be any stricter than that prevailing in a criminal trial. This follows readily once it is accepted that the basis for judicial intervention in the trial process is the protection of the adversary system itself, which is equally important in both civil and criminal jurisdictions. It also would follow that the class of exceptional cases cannot ever be considered closed. The consent of the parties is one recognised category of exception, and there may be others.
60 In Obacelo Pty Ltd v Taveraft Pty Ltd (supra), Wilcox J reviewed the authorities on the point and concluded that the presiding judge in a civil case could "call a witness, even over the opposition of a party, but that the discretion to take this course should be exercised sparingly and with great care." I agree with Wilcox J to the extent that, as I have already said, there may well be cases where, despite opposition by a party, preservation of the adversarial system requires that the judge call a witness. I also agree, however, with what Rares J said in Huang v University of New South Wales (No 3) (supra) at [25] of the decision of Wilcox J:
"Wilcox J said this view was consistent with the principle adopted in R v Apostilides (1984) 154 CLR 563 in respect of criminal trials. Unless his Honour meant by the word 'sparingly' to encapsulate the concept of the power being exercisable only '… in the most exceptional circumstances' (154 CLR at 575 [5]), I am unable to agree that the power in a civil case may be exercised more freely, absent statutory authority."
61 The appellant referred the Court to the decision of the English Court of Appeal in Deutsche Bank und Disconto Gesellschaft v Banque des Marchands de Moscou (supra). In that case the Court directed an Official Solicitor to investigate a matter and adduce evidence before the Court. The case was an exceptional one in which the very existence of the defendant bank and the authority of the purported director to instruct on its behalf were in doubt and it was in neither party's interest to prove the Soviet laws which would have settled the doubt. The case does not assist the appellant. The existence of a contending party is fundamental to the existence of a controversy. In my view, the case does not extend the power of the court to call evidence of its own motion at all beyond the boundary which I have identified, namely, that of ensuring the proper functioning of the adversary system.
62 Bassett v Host (supra), a case upon which the appellant relied, was a personal injuries case arising out of a collision between a motor cycle carrying two persons, one of whom was the plaintiff, and the defendant's motor car. The defendant did not give evidence. The plaintiff, due to his injuries, had no recollection of the events, including whether he or the other person was driving the motor cycle. The other person on the motor cycle was not called. Mahoney JA expressed the view in obiter dicta (at 213) that "a trial judge has the right and … the duty, in the proper case, to use his influence to see that the court has before it the evidence necessary for the proper determination of the issues." In the same case, Hope JA criticised the current law on the basis that it prevented the Court from calling the other person on the motor cycle but nevertheless appeared to accept that position. The other judge on the Court of Appeal, Reynolds JA, did not express a view on that point. In those circumstances, the case is not of great assistance in the elucidation of the law and certainly not in the disposition of the appeal. It is to be noted, nevertheless, that what Mahoney JA calls the "proper determination" of issues depends very much on the view taken of the function of the judge. It is critical to the adversary system that the parties themselves define the issues to be resolved: it is no part of the judicial power to create disputes. The definition of issues requiring resolution is intimately connected with the evidence presented. It is not to be supposed that simply because a party decides not to put on certain evidence, the court is prevented from reaching a "proper determination". The determination will be proper, having regard to the attitudes to the litigation adopted by the parties.
63 The appellant also cited Wigmore on Evidence (Chadbourn Rev.) v.9, s 2483. That section reinforces the traditional division of the roles of judge and advocate. I assume that the appellant intended to refer the Court to s 2484 in which section it is asserted that "the general judicial power … implies inherently a power to investigate as auxiliary to the power to decide; and the power to investigate implies necessarily a power to summon and to question witnesses." I might also add, however, that the learned author, though asserting the existence of the power to call a witness, writes: "That [the judge] has no burden or duty of doing so is plain in law".
64 While the learned author may state accurately the position in the United States, that does not coincide with the law in Australia. It might be that the divergence between the United States and the Australian positions is attributable to the differing views taken in the respective jurisdictions of the nature of the judicial power. The more the judicial power is viewed as an action by the State, that is to say, the government, on behalf of the entire community, the more it is to be expected that the active investigation of "truth" be a prominent consideration. In the United States, the judicial power is seen as an exercise of State power: New York Times Co v Sullivan, 376 US 254 (1964) at 265. In contrast, in Australia, the exercise of judicial power is not considered to be governmental, at least in the sense of being exercised on behalf of the entire community. So much is evident from the denial that discussion of the exercises of judicial power lies within the protection afforded by the freedom of political communication implied from the constitutional prescriptions of representative and responsible government: John Fairfax Pty Ltd v Attorney-General (NSW) (2000) 181 ALR 694 at 709 [83] per Spigelman CJ; Herald & Weekly Times Ltd v Popovic (2003) 9 VR 1 at 10 [9] per Winneke ACJ, at 103 [500]-[501] per Warren AJA; Conservation Council of SA Inc v Chapman (2003) 87 SASR 62 at 70-1 [15] per Doyle CJ, at 127-8 [295] per Besanko J; John Fairfax Publications Pty Ltd v O'Shane [2005] Aust Torts Reports ¶81-789 at [95] per Giles JA; APLA Ltd v Legal Services Commissioner (NSW) (2005) 224 CLR 322 at 360-361 [64]-[65] per McHugh J; see also Retail, Wholesale & Department Store Union v Dolphin Delivery Ltd [1986] 2 SCR 573 at 600. That explains, at least in part, the adherence in Australia to the traditional conception of the judge as an impartial adjudicator of a dispute defined by the parties, on whose behalf alone the judicial power is ever exercised.
65 There are other exceptional circumstances, apart from the consent of the parties, where the adversary system is not able to operate as envisaged. The proper functioning of the system depends to a large extent on certain assumptions, and principal among these assumptions is that the parties enjoy an equality of arms in the conduct of their matter. The adversary system, with its distinct roles for judge and advocate, relies on the ability of the parties to present their cases competently and comprehensively. It is uncontroversial to observe that in practice there can be disparities between the quality of representation enjoyed by opposing parties. Where that disparity is so pronounced as to produce a state of affairs in which one party is unable to fulfil its role within the adversary system, then the integrity of the adversary system itself is undermined. This was recognised by the High Court in another context in the well-known decision of Dietrich v The Queen (1992) 177 CLR 292 at 302 per Mason CJ and McHugh J, 334-5 per Deane J, 354 per Toohey J, 370-1 per Gaudron J.
66 Thus, where a party is unrepresented by counsel before the court, there may be circumstances where the intervention of the judge is necessary to preserve the integrity of the adversary system. In serious criminal trials, that intervention may be as extreme as to stay the proceedings: Dietrich v The Queen (supra). Sometimes, the intervention required may be minimal advice on the procedures of the Court. In between the two extremes, calling a witness may sometimes be appropriate intervention. For example, in R v Damic (supra), at the trial of the unrepresented accused, the trial judge had called of his own motion psychiatric evidence raising a defence of mental illness. The Court of Criminal Appeal found no error in such conduct, relying upon the crucial facts that the accused was both unrepresented and suffering mental illness (see also R v Wilson [1998] 2 Qd R 599 at 658-660 per Fitzgerald P and Lee J).
67 It is not to be assumed that it is a consequence of this that in every case involving an unrepresented litigant the judge will have power or responsibility to assume the conduct of the litigant's case. There is an important distinction between, for example, the criminal trial, in which a defendant is compelled by the State to answer charges, and private civil actions prosecuted by an unrepresented litigant.
68 Broadly similar considerations may arise where a party is represented, but where there is evidence of the incompetence of that representation (see Chouman v Margules (1993) 17 MVR 144).
69 In Huang v University of New South Wales (No 3) (supra), Rares J opined that another exception may exist in cases:
"… involving the welfare of a child, where the ascertainment of the child's best interests may not be able to be left solely to adversarial contest, because in that situation each party's interests are potentially different to, or distinct from, that of the child the subject of the parties' forensic battle."
I respectfully agree with this observation, which recognises that there may be cases where a relevant third party interest is not adequately served by a bipartisan contest and the intervention of the judge to restore the integrity of the adversarial system vis-ŕ-vis the third party interest is permissible.
70 It remains to consider whether in the present case there were present any exceptional circumstances which enlivened the judge's power to call Ms Sharp.
71 Even if I assume that the evidence of Ms Sharp was, as contended by the appellant, "vital", that alone does not constitute exceptional circumstances sufficient to enliven the Federal Magistrate's power to call Ms Sharp. It is not enough that the evidence would have shed light upon the matters in the proceeding, for truth of itself is not the touchstone of the power.
72 Nor is this a case where protection of a third party interest external to the dispute between the respondent and the appellant required the intervention of the Federal Magistrate to the extent that Ms Sharp be called. The respondent represented the creditors and Ms Sharp had no relevant third party interest. Her legal rights and obligations were in no way directly affected by the orders whatever might have been the arrangement between the appellant and Ms Sharp as to the latter's right to reside at the property.
73 Nor is this a case where a party was unable to participate effectively in the adversarial process without the intervention of the Federal Magistrate for want of representation or competent representation. For the purposes of determining whether the power to call Ms Sharp was enlivened by exceptional circumstances, the relevant question is not whether the appellant's decision not to call her as a witness was inadvertent or misjudged. The relevant question is whether the appellant's representation was so incompetent as to give rise to a necessity that the judge assume, at least in part, their responsibilities. The evidence falls a long way short of establishing that in this case and, in fact, there is nothing to suggest that the appellant's representation was other than competent.
74 In the absence of any exceptional circumstances, in my view, the power to call Ms Sharp was not enlivened.
75 It follows that because the Federal Magistrate lacked the power to call Ms Sharp in the circumstances, the appellant's submission that he was obliged to call her necessarily fails. In any event, it is difficult to envisage a situation where, assuming the existence of the power, a trial judge would be bound to exercise it by calling a person as a witness. In this case, it is unnecessary to consider that question. It is sufficient to say that the circumstances of the case, particularly those identified in [43] above, would weigh heavily against any argument that a judicial officer in the position of the Federal Magistrate would be bound to exercise the discretion by calling Mrs Sharp.
76 This ground of appeal fails.