Vexatious proceedings - Applicable Legal Principles
36All Mr Singh's conduct in commencing allegedly vexatious proceedings took place after the commencement of the Vexatious Proceedings Act 2008 ("the Act") on 1 December 2008. This case does not raise any issue about whether, when making an order, the Court may take into account conduct occurring prior to the commencement of the Act: see for example Attorney General v Chan [2011] NSWSC 1315 at [42], [43] and [44] per Adamson J.
37The Act, s 8 authorises the Court to make orders in relation to a person, if the Court is satisfied, that the person has frequently instituted or conducted vexatious proceedings in Australia. The section relevantly provides:
"8 Making of vexatious proceedings order
(1) When orders may be made An authorised court may make an order under this section (a vexatious proceedings order) in relation to a person if the court is satisfied that:
(a) the person has frequently instituted or conducted vexatious proceedings in Australia, or
(b) the person, acting in concert with a person who is subject to a vexatious proceedings order or who is referred to in paragraph (a), has instituted or conducted vexatious proceedings in Australia.
(2) For the purposes of subsection (1), an authorised court may have regard to:
(a) proceedings instituted or conducted in any Australian court or tribunal (including proceedings instituted or conducted before the commencement of this section), and
(b) orders made by any Australian court or tribunal (including orders made before the commencement of this section).
(3) An authorised court must not make a vexatious proceedings order in relation to a person without hearing the person or giving the person an opportunity of being heard.
(4) Orders may be made on court's own motion or on application An authorised court may make a vexatious proceedings order of its own motion or on the application of any of the following persons:
(a) the Attorney General,
(b) the Solicitor General,
(c) the appropriate registrar for the court,
(d) a person against or in relation to whom another person has instituted or conducted vexatious proceedings,
(e) a person who, in the opinion of the court, has a sufficient interest in the matter.
...
(7) Orders that may be made by Supreme Court The Supreme Court may make any one or more of the following vexatious proceedings orders in relation to a person:
(a) an order staying all or part of any proceedings in New South Wales already instituted by the person,
(b) an order prohibiting the person from instituting proceedings in New South Wales,
(c) any other order that the Court considers appropriate in relation to the person...."
38It is at least implicit in the Vexatious Proceedings Act, s 3 that the Supreme Court of New South Wales is an "authorised Court" empowered to make s 8 orders.
39The orders sought by the Applicant rely on s 8(7)(b): orders prohibiting the institution of further proceedings.
40The Court's power to make a s 8 order is discretionary: the Court "may make an order" under the section. Before exercising this statutory discretion the Court must be relevantly satisfied, under s 8(1), of three elements. These are that the person: (1) has "instituted or conducted"; (2) "vexatious proceedings"; and (3) the person has done so "frequently". It is not contested that all the proceedings the Applicant relies upon in his case were conducted "in Australia". The law in relation to each of these elements has developed by judicial exegesis of this legislation.
41To "institute" proceedings has a broad meaning under the Act. It covers both civil and criminal proceedings and proceedings before courts and tribunals. The term to "institute" proceedings is defined in the Act, s 5:-
"5 Instituting proceedings
(1) In this Act, institute, in relation to proceedings, includes:
(a) for civil proceedings-the taking of a step or the making of an application that may be necessary before proceedings can be started against or in relation to a party, and
(b) for proceedings before a tribunal-the taking of a step or the making of an application that may be necessary before proceedings can be started before the tribunal, and
(c) for criminal proceedings-the making of a complaint or the obtaining of a warrant for the arrest of an alleged offender, and
(d) for civil or criminal proceedings or proceedings before a tribunal-the taking of a step or the making of an application that may be necessary to start an appeal in relation to the proceedings or to a decision made in the course of the proceedings.
(2) A reference in this Act to instituting proceedings includes a reference to instituting:
(a) proceedings generally, and
(b) proceedings in relation to a particular matter, and
(c) proceedings against or in relation to a particular person, and
(d) proceedings in a particular court or tribunal."
42The concept of "conducting" proceedings needs no separate explanation. It covers every step a party may take to further existing litigation.
43Each of the two components of "vexatious proceedings" requires separate analysis. First, the term "proceedings" is defined inclusively in the Act, s 4 in the following way:-
"4 Meaning of 'proceedings'
In this Act, proceedings includes:
(a) any cause, matter, action, suit, proceedings, trial, complaint or inquiry of any kind within the jurisdiction of any court or tribunal, and
(b) any proceedings (including any interlocutory proceedings) taken in connection with or incidental to proceedings pending before a court or tribunal, and
(c) any calling into question of a decision, whether or
not a final decision, of a court or tribunal, and whether by appeal, challenge, review or in another way."
44Importantly "proceedings" under the Act includes all interlocutory and appellate action taken in connection with existing proceedings: s 4(b). Thus the Act counts an interlocutory application or an appeal as separate "proceedings". In ordinary language an appeal or an interlocutory application would not readily be described as separate proceedings. But such process is defined this way in the Act.
45This extended definition of "proceedings" means that the Court can have regard to baseless interlocutory applications or appeals in deciding whether to make a s 8 order: Attorney General v Wilson [2010] NSWSC 1008 ("Wilson") at [15]. The scope of what the Court may take into account within "proceedings" is wide. It includes repeated oral applications with no proper basis, and it includes the manner in which a person speaks or acts in the courtroom: Wilson at [16].
46The Act separately defines which types of "proceedings" will qualify as "vexatious proceedings". This is provided for in the Act, s 6:-
"6. Meaning of 'vexatious proceedings'
In this Act, vexatious proceedings includes:
(a) proceedings that are an abuse of the process of a court or tribunal, and
(b) proceedings instituted to harass or annoy, to cause delay or detriment, or for another wrongful purpose, and
(c) proceedings instituted or pursued without reasonable ground, and
(d) proceedings conducted in a way so as to harass or annoy, cause delay or detriment, or achieve another wrongful purpose."
47The Court may decide whether or not a proceeding is "vexatious" having regard to the findings and result in the proceedings under consideration: Wilson at [22]. And, the Court may have regard to the way the person has conducted himself or herself in the proceedings before the Court, including the way the defence is conducted in answer to the very proceedings brought for the orders under the Act, s 8: Official Trustee in Bankruptcy v Gargan (No. 2) [2009] FCA 398 ("Gargan (No. 2)") at [12], per Perram J.
48The categories of vexatious proceedings provided for under the Act, s 6(a) to (d) are linked. Because of the linkage between them it is convenient to consider together paragraphs 6(a) "abuse of process" and paragraphs 6(c) "without reasonable ground". Proceedings may constitute an abuse of process regardless of the personal intention, motive or state of mind of the litigant: Attorney General v Shaw [2004] WASC 280 ("Shaw") at [22].
49What amounts to an abuse of process is insusceptible to a formulation comprised of closed categories: Batistatos v Roads and Traffic Authority of New South Wales (2006) 226 CLR 256; [2006] HCA 27 ("Batistatos") at [9]. But an abuse of process can be defined inclusively. The concept includes: the pursuit of proceedings that have no prospects of success or no real prospect of resulting in a remedy of substance but which involve: (1) unjustifiable expense or use of judicial resources, Attorney General v Crocker [2010] NSWSC 942 ("Crocker") at [17], per Fullerton J; (2) the pursuit of concurrent proceedings for substantially the same relief, or the pursuit of fresh proceedings after a remedial defeat in previous proceedings (Crocker at [17]); (3) the determination to persist in futile appeals in the face of repeated judicial observations that arguments were doomed to failure (Crocker at [133]); and, (4) causing others to incur legal costs in responding to hopeless applications in circumstances where the defendant has disregarded costs orders already made against him (Crocker at [134]).
50The Act's, s 6(c) definition of "vexatious proceedings" as proceedings "without reasonable ground" is gauged objectively, and not from the perspective of the litigant said to be vexatious. This approach protects courts from litigants who genuinely but misguidedly are persuaded as to the correctness of their own conduct: Gargan (No. 2) at [9]. One form of want of reasonable grounds is a failure or refusal on the part of the person instituting proceedings to understand the principles of finality of litigation: Gargan (No. 2) at [7]. Thus, proceedings that lack reasonable grounds may also constitute an abuse of process. It will often be the case that proceedings with no prospect of success, or with no real prospect of a remedy of substance will also be brought without reasonable grounds. As Adamson J explained in Pascoe v Liprini [2011] NSWSC 1484 ("Liprini") at [10], sub-paragraphs 6(b), (c) and (d) of the Act are not discrete categories, separate from s 6(a), because each of sub-paragraphs (b) - (d) "could properly be regarded as an abuse of process of a court or tribunal".
51Paragraphs 6(b) and (d) of the Act also represent related categories. They refer to the same underlying conduct "to harass or annoy, cause delay or detriment". Paragraph 6(b) refers to the actor's subjective intentions, whereas sub-paragraph 6(d) does not; rather paragraph 6(d) is concerned with the effect and consequences of action rather than the motive or design for action: Liprini at [10]. Thus, the Court does not have to determine whether or not a defendant has a subjective intention to "harass or annoy, to cause delay or detriment" by proceedings: only that this is the consequence of the defendant's litigious conduct.
52To enliven the Court's s 8(1) discretion the alleged vexatious proceedings must also be instituted or conducted "frequently". In Wilson at [13] - [14] Davies J adopted the approach of the New Zealand Court of Appeal in Brogden v Attorney General [2001] NZCA 208 ("Brogden") in assessing whether or not allegedly vexatious proceedings are brought "frequently". The New Zealand Court of Appeal in Brogden (at 201) stated:
"A litigant may be said to be persisting in litigating though the number of separate proceedings he or she brings is quite small if those proceedings clearly represent an attempt to re-litigate an issue already conclusively determined against that person, particularly if this is accompanied by extravagant or scandalous allegations which the litigant has no prospect of substantiating or justifying. The Court may also take into account the development of a pattern of behaviour involving a failure to accept an inability in law to further challenge decisions in respect of which the appeal process has been exhausted, or attacking a range of defendants drawn into the widening circle of litigation solely because of an association with a defendant against whom a prior proceeding has failed."
53It is no longer necessary for the Applicant to prove that a litigant has "persisted" in vexatious litigation before an order may be made under the Act; contrasting with the repealed equivalent provision in Supreme Court Act, s 84. But the passage in Brogden reminds that concepts such as "frequently" in the Act must be measured by more than just the counting of the number of actions brought.
54The term "frequently" has been described as "a relative term" which must be looked at in the context of the litigation being considered: Gargan (No. 2) at [7]. But considering comparative frequency in other cases where Vexatious Proceedings Act orders have been made can be useful. Examples of the institution of vexatious proceedings recurring sufficiently often to qualify as occurring "frequently" are: (1) the institution of proceedings on a monthly basis over ten years totalling 124 proceedings (Crocker at [136]); (2) instituting 14 separate Supreme Court actions in eleven years (Wilson at [46]), and; (3) instituting 37 separate applications in various courts and tribunals against a variety of defendants over a period of 3 years (Attorney General v Tareq Altaranesi [2013] NSWSC 63).
55If the proceedings relied upon to found the application are interlocutory applications, to assess the question of frequency the Court will "examine the nature of the applications, to determine whether they are simply a consequential aspect of the original proceedings or something different": Siteberg v Maples [2010] NSWSC 1344 at [32] ("Siteberg'). The Court may be more willing to conclude that vexatious proceedings are brought frequently where they are brought against the same person or involve the same subject matter or where the claim is fanciful: Siteberg at [32].
56The exercise of the Court's s 8(1) discretion here raises special considerations. The purpose of making orders under the Act is not to punish but to protect both the public and the Court itself from vexatious proceedings, especially because the Court's "limited resources and needs must be carefully managed and protected from the expense, burden and inconvenience of baseless and repetitious suits": Gargan (No. 2) at [3]. Once the Act's s 8 discretion is enlivened, the relevant considerations are unconfined but the relevant factors will be informed by the protective purpose which the order serves: Gargan (No. 2) at [12].
57Finally a relevant consideration in every case where a s 8(1) order is sought under the Act is the consideration that it is a serious matter to deprive a litigant of access to the courts: Wilson at [11]. If an order is made it may need to be moulded to give proper weight to this consideration; a power that the Act confers on the Court under s 8(7)(c).