Assessment of costs by the panel
15 On 7 August 2007 the Wendes applied to have the determination of the costs assessor reviewed by a review panel of costs assessors. The determination of the costs assessor was referred to a panel for review. On 26 November 2007 the review panel issued a certificate of its determination of costs, certifying that the amount of costs determined by the panel was $22,414.50.
16 As required by s 380 of the Act, the panel issued a statement of its reasons for its determination. This statement of reasons is 13 pages long.
17 In par 1 of its reasons the panel listed the numerous documents it had received for the purpose of making its determination. In par 2 of its reasons the panel provided definitions of the various terms it would use in its reasons. One term which was defined was "the Berghofen parties" meaning Herbert Wende, Margaret Wende and Mark Lloyd. There is no paragraph numbered 3 in the reasons.
18 In par 4 of its reasons the panel considered the nature of the review it had to conduct. This paragraph is in the following terms:-
"4. NATURE OF REVIEW
4.1 A review panel has "all the functions of a costs assessor…" and is to "determine the application … in the manner that a costs assessor would be required to determine an application for costs assessment" (s375(2) LPA 2004). A review panel must therefore act in the same manner as a costs assessor.
4.2 The panel is "not to receive submissions from the parties" or "to receive any fresh evidence or evidence in addition to or in substitution for the evidence received by the costs assessor" unless "the panel determines otherwise" (s375(3)LPA 2004).
4.3 In Kells v Mulligan & Or [2002] NSWSC 76, particularly paragraphs 24 to 27, Master Malpass, as he then was, indicated that the function of the panel was to conduct a review as opposed to entertaining an appeal. The Master assessed that a panel finding an assessor had "fairly and competently conducted his assessment" was a misconception of the function of a panel.
4.4 The Berghofen parties provided grounds for review. The purpose of those grounds is to indicate to the panel those items in respect of which the Berghofen parties seek reassessment.
4.5 The panel's function is to conduct a reassessment of those items identified in the review application as being affected by the grounds.
4.6 It is not the function of the panel to make comments on the conduct of an assessor of the original assessment, except to the extent that it is appropriate to do so in the course of determining the review application.
4.7 The grounds contain a number of matters directed to all the fee items claimed in the bill. Most of the grounds affect all the fee items. The barrister's fees are also the subject of the grounds.
4.8 It follows that the Berghofen parties have put all the costs claimed in issue by indicating grounds affecting all the fee items, and all but $100.00 of the expense items (the courier, photocopying and filing fees).
4.9 The panel has therefore reassessed the whole of the bill, on the basis of all the material that was before the assessor.
4.10 The panel has not received submissions from the parties, or received any fresh evidence or evidence in addition to or in substitution for the evidence received by the original assessor. The panel has conducted its reassessment on the basis only of the material before the assessor with the exception only of some material on the grounds (see for example 8.3)."
19 Paragraph 5 of the panel's reasons was in the following terms:
"5. GROUNDS OF REVIEW: GENERAL MATTERS
5.1 The panel will set out some observations about the proceedings. The Supreme Court proceedings were commenced by a summons. The summons filed by the Berghofen parties ran to eight pages, five and a half of them very full pages typed in very modest sized print. Five orders were sought and the "appeal grounds' comprised five of the five and a half pages referred to above.
5.2 The judgment of Associate Justice Malpass dismissing that summons ran to 35 numbered paragraphs over eight pages, determining the Supreme Court proceedings and resulting in the Supreme Court proceedings costs order.
5.3 The Supreme Court notice of motion proceedings were ultimately commenced with a notice of motion seeking five orders, including an order that the summons be amended, and that the grounds relied on exceed two relatively close typed pages. The affidavit of Mark Lloyd in support of that summons comprised three pages.
5.4 In relation to the appeal proceedings, the initial summons was dismissed, and then on 14 December 2005 leave was granted to the Berghofen parties to file an appeal summons, and an extension of time for doing so was granted. The summary of argument submitted in respect of the appeal runs to nine pages. The amended summons sought 12 orders, and on pages 2 to 12 inclusive (of a 15 page document) set out grounds of appeal relating to difficulties in running the case without joining the solicitor Mr Lyons, referring to matters in a previous assessment and review, a District Court case, whether Horwath should have been allowed to amend a defence, whether Horwath had and should provide further particulars of its defence and cross-claim, matters related to expert evidence and the Uniform Civil Procedure Rules and denial of natural justice, an alleged contempt of Court and false statements, the cause of delays, and procedures adopted by Magistrate Lulham said to have been unfair to the Berghofen parties.
5.5 The draft notice of appeal was of two pages.
5.6 The various proceedings related to interlocutory orders arising from the Local Court proceedings, or refusal to make interlocutory orders, or matters of procedure and fairness in the course of the interlocutory proceedings.
5.7 The panel has set out a very brief overview of the proceedings and the documents indicating the nature of the very proceedings, because it is apparent from an examination of those documents that the Berghofen parties raised a great number of issues, of some complexity. Having done so, the Berghofen parties created circumstances in which it was reasonable to engage a senior solicitor and a barrister to deal with the complexity of the proceedings.
5.8 Having looked through all the material, the panel cannot accept a number of submissions made by the Berghofen parties, for example:
5.8.1 That the involvement of Mr Hughes "was not necessary" (which, as the panel have indicated, is not the test in any event). It was reasonable to engage Mr Hughes to do the work that he did;
5.8.2 The costs for the work done 'should amount to $1,480.00 for the Supreme Court action and $1,035.00 for the Court of Appeal action". The fair and reasonable amount of costs assessed on a global basis should be $10,000.00 to $12,000.00 in the panel's opinion; and
5.8.3 Ms Cynthia Chan "would have been quite capable of dealing with all matters". It was reasonable to engage senior solicitors in the way that Horwath did.
5.9 It is with this background to the proceedings that the panel now turns to specific matters raised in the review application."
20 Paragraph 6 of the panel's reasons was in the following terms:
"6 SOLICITOR/CLIENT ATTENDANCES
6.1 The panel has looked at whether it was reasonable to carry out the work, whether the work was carried out in a reasonable manner, and the fairness and reasonableness of the amount of legal costs in relation to the work done (section 363(1) LPA 2004).
6.2 As the panel is conducting a reassessment, it is not necessary for the panel to comment on the approach of the assessor, but it seems to the panel that the assessor adopted the correct approach. In the reasons the assessor wrote that whether a matter was "solicitor client" was "not the test in an assessment where it is my role to determine what is 'fair and reasonable". The panel affirms that approach of the assessor.
6.3 The panel has taken the objection "solicitor/client" to mean that it was not reasonable to carry out the work in the context of the proceedings. Use of the words "solicitor client" and (elsewhere in the objections) reference to certain work as not being "essential" or "necessary" is unhelpful.
6.4 The test of whether it was reasonable to do work is a "real-world" test. Looking at the nature of the proceedings commenced by the Berghofen parties, the issue is what work was it reasonable for Horwaths to instruct its solicitors to do, and for the solicitors and barristers to do in respect of those proceedings. Assessors and review panellists are experienced solicitors. They can and should call on their experience to determine what work it was reasonable to do, and in what manner work ought to be done, in order to determine the fair and reasonable amount of costs."
21 In paragraph 7 of its reasons the panel held that it would not take into account a determination of costs made by a costs assessor in another matter between the same parties.
22 Paragraph 8 of the panel's reasons was in the following terms:-
8. HOURLY RATES AND SIX MINUTE UNITS
8.1 In the review application, the Berghofen parties submit that "a charge of a partner is around $250.00 per hour and for an employed solicitor less. A good estimate would be a charge for a costs assessor of $192.50 per hour".
8.2 There were submissions in the objections as to the total amount that was fair and reasonable for costs. The only specific submission regarding rates made in the objections was that when "AM" or "GSS" performed work, the rate of "CKC" (Cynthia Chan) should be substituted. Accordingly in the original objections the submission was actually that the rates of Ms Chan, which were $250.00 per hour from 1 July 2005 to 30 June 2006, and $300.00 per hour from 1 July 2006 to the last item of work in the bill (9 December 2006) were fair and reasonable.
8.3 That is very different to the submission made in the review application, but to the extent that the submission in the review application that costs should be at the rate of $192.50 or $250.00 per hour comprises new evidence or submissions, the panel will take those submissions into account, even though they were not specifically put before the assessor.
8.4 The panel rejects those submissions. The panel accepts in all the circumstances the rates referred to at J on the page numbered 6 in the bill for the work of the various solicitors.
8.5 The panel accepts those charges in minimum units of six minutes.
8.6 Where a number of items were done one after the other, the use of six minute units can artificially increase the amount charged through the adoption of particular parts of the work as an "item". Had that occurred, the panel would have reduced the costs claimed."
23 In par 9 of its reasons the panel considered the "onus of proof". Paragraph 9.1 was in the following terms:
"9.1 The panel accepts that where the Berghofen parties have raised objections, the onus is on Horwath to satisfy the assessor, and now to satisfy the panel on the basis of the material before the assessor, that it was reasonable to carry out the work, the work was carried out in a reasonable manner, and therefore as to the fair and reasonable amount of costs for the work concerned (section 364(1) LPA 2004)."
24 In the remainder of paragraph 9 the panel rejected a submission which had been made by the Wendes that, if Horwath had not responded "to every detail of the item by item objections submitted by the Berghofen parties", Horwath should be taken to have conceded the items.
25 Paragraphs 10 and 11 of the panel's reasons were in the following terms:-
"10. GLOBAL APPROACH
10.1 In the review application the Berghofen parties submit that the assessor's approach of deciding "what is a fair amount of time to be spent on the matter" is not a permissible approach.
10.2 The panel is of the view that it is permissible for an assessor in an appropriate matter to assess costs globally, as the assessor did in this matter.
10.3 In the objections the Berghofen parties seem to have invited the assessor to assess costs globally. The Berghofen parties indicated in the objections "I estimate that total allowable fees for this work should not exceed $1,480.00" in relation to the first part of the bill, and the figure of $1,035.00 in relation to the second part of the bill. That is repeated in the part of the objections headed "Submissions of Costs Respondent to Costs Assessment No. 587 of 2007", at paragraph 8 where an estimate is made by the Berghofen parties of the "fair and reasonable costs for the work done" at $1.480.00 (for the Supreme Court proceedings and the Supreme Court notice of motion proceedings), and $1,035.00 (for the Court of Appeal proceedings). The Berghofen parties stated in that document "the costs respondents stand by these figures".
10.4 The Berghofen parties continue with a global approach in the review application at the paragraph numbered 7 on page 4 where they submit "the costs should have been assessed to be $2,515.00 as specified in that notice of objections".
10.5 The assessor, adopting a global approach, came to a figure of $11,000.00 for fees. The panel, looking at fees on an "item-by-item" basis has come to a figure of $10,627.00 exclusive of GST for fees. The panel finds no fault with the assessor's approach, but more importantly the panel has arrived at the figure substituted for the assessor's determination by a process of assessment of individual items. The two figures are very close.
10.6 A further submission is made as to what 25 hours of work would be at various rates. It is not necessary for the panel to enter into that matter, given that the panel has accepted the rates referred to in the bill as fair and reasonable in all the circumstances, and assessed costs on an "item-by-item" basis (although not required to do so).
11. ATTENDANCE OF TWO SOLICITORS
11.1 In the review application the Berghofen parties submit that the assessor "specified the instances where he reduced the bill because two solicitors were in attendance when only one was required, but there were other instances where this occurred, namely items 17 and 18, and 40 and 41, and the bill should have been reduced accordingly".