Relevant principles - apprehended bias
4 In Rush v Nationwide News Pty Limited (No 8) [2019] FCA 1382 at [16]-[29], I summarised and discussed the applicable principles where a litigant applies for a judge to disqualify himself or herself on the grounds of apprehended bias. What follows is an adaptation of what was said in that judgment.
5 The relevant principles in relation to apprehended bias are well settled. In Ebner v Official Trustee in Bankruptcy [2000] HCA 63; 205 CLR 337, Gleeson CJ, McHugh, Gummow and Hayne JJ conveniently summarised the principles in the followings terms (at [6]-[8]):
Where, in the absence of any suggestion of actual bias, a question arises as to the independence or impartiality of a judge (or other judicial officer or juror), as here, the governing principle is that, subject to qualifications relating to waiver (which is not presently relevant) or necessity (which may be relevant to the second appeal), a judge is disqualified if a fair-minded lay observer might reasonably apprehend that the judge might not bring an impartial mind to the resolution of the question the judge is required to decide. That principle gives effect to the requirement that justice should both be done and be seen to be done, a requirement which reflects the fundamental importance of the principle that the tribunal be independent and impartial. It is convenient to refer to it as the apprehension of bias principle.
The apprehension of bias principle may be thought to find its justification in the importance of the basic principle, that the tribunal be independent and impartial. So important is the principle that even the appearance of departure from it is prohibited lest the integrity of the judicial system be undermined. There are, however, some other aspects of the apprehension of bias principle which should be recognised. Deciding whether a judicial officer (or juror) might not bring an impartial mind to the resolution of a question that has not been determined requires no prediction about how the judge or juror will in fact approach the matter. The question is one of possibility (real and not remote), not probability. Similarly, if the matter has already been decided, the test is one which requires no conclusion about what factors actually influenced the outcome. No attempt need be made to inquire into the actual thought processes of the judge or juror.
The apprehension of bias principle admits of the possibility of human frailty. Its application is as diverse as human frailty. Its application requires two steps. First, it requires the identification of what it is said might lead a judge (or juror) to decide a case other than on its legal and factual merits. The second step is no less important. There must be an articulation of the logical connection between the matter and the feared deviation from the course of deciding the case on its merits. The bare assertion that a judge (or juror) has an "interest" in litigation, or an interest in a party to it, will be of no assistance until the nature of the interest, and the asserted connection with the possibility of departure from impartial decision making, is articulated. Only then can the reasonableness of the asserted apprehension of bias be assessed.
(Footnotes omitted.)
6 The two-step test in Ebner requires the identification of what might affect the judge's impartiality and its logical connection with the possibility of departure from impartial decision-making in the case at hand.
7 Ebner concerned cases where the first step was said to have been satisfied because the judge had a direct or indirect pecuniary interest in the cause. Mr Shaw did not suggest that I had any direct or indirect interest in the litigation. Nor was there any suggestion that I had any association with any party or witness. Rather, as best I can gather, the asserted appearance of impartiality is said to flow entirely from my conduct of case management and interlocutory hearings in this proceeding. Mr Shaw appears to contend that a fair-minded lay observer might reasonably apprehend from what occurred at those case management and interlocutory hearings that I had or might have a predisposition against him for some reason and that I therefore might not bring an impartial mind to the resolution of his case. More will be said about Mr Shaw's contentions in that regard later.
8 The fair-minded lay observer is "postulated in order to emphasise that the test is objective, is founded in the need for public confidence in the judiciary, and is not based purely upon the assessment by some judges of the capacity or performance of their colleagues": Johnson v Johnson [2000] HCA 48; 201 CLR 488 at [12]. While the fictional or hypothetical observer is not a lawyer and is not assumed to have a detailed knowledge of the law, they are taken to be reasonable and to not be "wholly uninformed and uninstructed about the law in general or the issue to be decided": Johnson at [53] (per Kirby J citing R v George (1987) 9 NSWLR 527 at 536, per Street CJ). It is necessary to attribute to the fair-minded lay observer knowledge of all of the circumstances of the case: CUR24 v Director of Public Prosecutions [2012] NSWCA 65; 83 NSWLR 385 at [39].
9 The "reasonableness of any suggested apprehension of bias is to be considered in the context of ordinary judicial practice": Johnson at [13]. That includes "the exigencies of modern litigation" and modern case management practices: Johnson at [13]. The plurality in Johnson noted the following in that regard (at [13]):
… At the trial level, modern judges, responding to a need for more active case management, intervene in the conduct of cases to an extent that may surprise a person who came to court expecting a judge to remain, until the moment of pronouncement of judgment, as inscrutable as the Sphinx. …
10 Similarly, in British American Tobacco Australia Services Limited v Laurie [2011] HCA 2; 242 CLR 283, Heydon, Kiefel, and Bell JJ referred to the active role a modern judge is likely to play in case management and said (at [140]) that "[t]rial judges are frequently required to make rulings excluding irrelevant and prejudicial material from evidence [and] [r]outine rulings of this nature are unlikely to disqualify the judge from further hearing the proceeding".
11 In Doggett v Commonwealth Bank of Australia [2019] FCAFC 19, the Full Court (Kerr, Davies and Thawley JJ) said as follows in relation to claims of apprehended bias based on rulings in interlocutory proceedings or judgments (at [11]):
Claims of apprehended bias arise not infrequently, as they have in this appeal, in respect of interlocutory proceedings. The usual position in relation to interlocutory proceedings is that an apprehension of bias is not per se manifested by an unfavourable finding. That is because often there will be instances prior to a final decision where a judge will require steps to be taken or not taken which disappoint one side or another in a proceeding. It is inherent in the interlocutory process that such preliminary decisions are made. Unfavourable findings, in such circumstances, are not to be taken by a fair-minded person as an expression that the judge has other than an impartial and unprejudiced mind in relation to the substantive proceeding. …
12 I should add in this context that in AJH Lawyers Pty Ltd v Careri [2011] VSCA 425; 34 VR 236, the Court of Appeal of the Supreme Court of Victoria, noted, amongst other things, that while judges should normally give an applicant reasonable opportunity to make submissions, judges do not have to devote unlimited time to listening to unmeritorious arguments; sometimes a brief hearing will suffice (at [25]).
13 In Re J.R.L.; Ex parte C.J.L [1986] HCA 39; 161 CLR 342, Mason J said the following in relation to allegations of apprehended bias based on the conduct of a judge during the litigation, which would include statements and findings made in interlocutory judgments (at 352):
It needs to be said loudly and clearly that the ground of disqualification is a reasonable apprehension that the judicial officer will not decide the case impartially or without prejudice, rather than that he will decide the case adversely to one party. There may be many situations in which previous decisions of a judicial officer on issues of fact and law may generate an expectation that he is likely to decide issues in a particular case adversely to one of the parties. But this does not mean either that he will approach the issues in that case otherwise than with an impartial and unprejudiced mind in the sense in which that expression is used in the authorities or that his previous decisions provide an acceptable basis for inferring that there is a reasonable apprehension that he will approach the issues in this way. In cases of this kind, disqualification is only made out by showing that there is a reasonable apprehension of bias by reason of prejudgment and this must be "firmly established": Reg. v. Commonwealth Conciliation and Arbitration Commission; Ex parte Angliss Group; Watson; Re Lusink; Ex parte Shaw. Although it is important that justice must be seen to be done, it is equally important that judicial officers discharge their duty to sit and do not, by acceding too readily to suggestions of appearance of bias, encourage parties to believe that by seeking the disqualification of a judge, they will have their case tried by someone thought to be more likely to decide the case in their favour.
(Footnotes omitted.)
14 In the same case, Wilson J said (at 359-360):
A court of review must be careful not to exaggerate the significance of actions or statements made by a judge in the course of a proceeding. There must be "strong grounds" (Reg. v. Australian Stevedoring Industry Board; Ex parte Melbourne Stevedoring Co. Pty. Ltd.) for inferring the existence of a reasonable suspicion.
(Footnote omitted.)
15 The requirement that an apprehension of bias, based on judicial conduct, be "firmly established" was also emphasised in Laws v Australian Broadcasting Tribunal [1990] HCA 31; 170 CLR 70 at 100 (per Gaudron and McHugh JJ) and British American Tobacco at [45], where French CJ said it "gives content to the requirement that an apprehension of bias, in that class of case, be reasonable" and [71] (per Gummow J). French CJ and Gummow J were in dissent in British American Tobacco, though the dissent mainly turned on the application of the facts to the relevant principles.
16 Apprehended bias will not generally be established by "pointing to adverse findings" in the judgment, even where the findings involve strong adverse credit findings: Royal Guardian Mortgage Management Pty Ltd v Nguyen [2016] NSWCA 88; 332 ALR 128 at [234] (per Ward JA, Basten JA and Emmett AJA agreeing). Similarly, the fact that "a judge has not accepted submissions, or has taken a view of evidence in a way that one of the litigants disagrees with or asserts is wrong in principle, is not enough to establish a reasonable apprehension of bias": Knaggs v Director of Public Prosecutions (NSW) [2007] NSWCA 83; 170 A Crim R 366 at [95]; see also SZCOS v Minister for Immigration & Citizenship [2008] FCA 570 at [36]; Spalla v St George Wholesale Finance Pty Ltd [2006] FCA 416 at [14]; DOQ17 v Australian Financial Security Authority (No 2) [2018] FCA 1270; 363 ALR 681 at [33]. In Hamod v State of New South Wales (No 11) [2008] NSWSC 967, Harrison J said (at [20]) that unfavourable decisions against a party "are not, and can never be, without more sufficient to support or establish the existence or manifestation of an objective apprehension of bias".
17 Where "numerous separate aspects are relied upon to suggest a reasonable apprehension of bias, it will usually be necessary to assess the individual elements separately and then cumulatively": Downey v Acting District Court Judge Boulton (No 5) [2010] NSWCA 240; 78 NSWLR 499 at [176] (per Basten JA, Allsop P and Macfarlan JA agreeing); see also Concrete Pty Limited v Parramatta Design & Developments Pty Ltd [2006] HCA 55; 229 CLR 577 at [114]; IOOF Australia Trustees Ltd v SEAS Sapfor Forests Pty Ltd [1999] SASC 249; 78 SASR 151 at 192; Tarrant J, Disqualification for Bias (Federation Press, 2012) at p 301.