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AVOIDING A BREACH OF THE PROFESSIONAL CONDUCT AND PRACTICE RULES - PDF
AVOIDING A BREACH OF THE PROFESSIONAL CONDUCT AND PRACTICE RULES
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1 PROFESSIONAL CONDUCT AND ADVOCACY AVOIDING A BREACH OF THE PROFESSIONAL CONDUCT AND PRACTICE RULES VIRGINIA SHIRVINGTON B.A., LL.B. (SYD) SENIOR ETHICS SOLICITOR LAW SOCIETY OF NEW SOUTH WALES2 Professional Conduct and Advocacy Avoiding a Breach of the Professional Conduct and Practice Rules Any judge who is invited to make or contemplates making an order arising out of an advocate s conduct of court proceedings must make full allowance for the fact that an advocate in court, like a commander in battle, often has to make decisions quickly and under pressure, in the fog of war and ignorant of developments on the other side of the hill. Mistakes will inevitably be made, things done which the outcome shows to have been unwise. But advocacy is more an art than a science. It cannot be conducted according to formulae These observations by Sir Thomas Bingham M.R. (now Lord Bingham of Cornhill) in Ridehalgh v Horsefield [1994] Ch.205 are described as instructive by Lord Browne-Wilkinson in the recent House of Lords decision abolishing advocate s immunity (Arthur J S Hall and Co v Simons (AP) Barratt v Ansell and Others (Trading As Woolf Sebbon (A Firm) Harris v Scholfield Roberts and Hill (Conjoined Appeals) [2000] UKHL 38 (20 July 2000) ). They certainly emphasise the difficulties which advocates face. Where do the Professional Conduct and Practice Rules fit in with practice as a solicitor advocate? What are the fundamental principles and how can you gain guidance for avoiding a breach? Firstly, where do the Rules fit in with practice as a solicitor per se? As well as being subject to the general law, solicitors as members of the profession are subject to: The Legal Profession Act, 1987 An Act to regulate the admission and practice of barristers and solicitors ( the Act ) The Revised Professional Conduct and Practice Rules made by the Council of the Law Society of New South Wales on 24 August 1995 pursuant to its power under Section 57B of the Legal Profession Act, 1987 ( the Rules )3 The Statement of Ethics proclaimed by the Law Society of New South Wales in November 1994, a copy of which is reproduced at the end of this paper There is a significant body of common law authority in relation to the professional obligations of solicitors. Section 38H of the Act provides that practice as a solicitor is subject to the Rules. Section 57D(4) provides that while a breach of the Rules may not necessarily involve a breach of the Act it may amount to professional misconduct or unsatisfactory professional conduct. There may be situations which are not expressly covered by the Rules to which general ethical principles apply. It is important to repeat some general observations about the legal profession, solicitors' duties and the solicitor/client relationship and its limitations. Some useful examples also follow explaining the application of the Rules. The Honourable Profession The law should protect the rights and freedoms of members of the community. The administration of the law should be just. The lawyer practises law as an officer of the Court. The lawyer s role is both to uphold the rule of law and serve the community in the administration of justice. These are the opening words of the Statement of Ethics proclaimed by the Council of the Law Society of New South Wales on 20 November Much earlier, Isaacs J made the following statement in Incorporated Law Institute of New South Wales -v- R D Meagher (1909) 9 CLR 655 at 681 which is important in understanding the role of the lawyer in society: there is therefore a serious responsibility on the court a duty to itself, to the rest of the profession, to it suitors, and to the whole of the community to be4 careful not to accredit any person as worthy of public confidence who cannot satisfactorily establish his right to that credential. These comments are mirrored by the much later comments of Kirby P speaking of the barrister s duty of candour to the courts in New South Wales Bar Association -v- Thomas (No 2) (1989) 18 NSWLR 193, a matter involving a failure of counsel to disclose during criminal proceedings how certain statements had been obtained. Kirby P said at p204: The rank of barrister is one of status. With it go obligations which cannot be shaken off or forgotten simply because the holder of the office has not been practising in the daily work of a barrister. If a person does not wish to assume the obligations to the Court of the barrister, that person should not seek admission by the Court as such. Once admitted, the additional duties of invariable candour as well as honesty to a Court prevail. As I noted above, solicitors are subject to the law (statute law and the common law) so are all members of the community. However, the legal profession is in a different position in a two-fold way: a breach of the law might bring professional as well as legal sanctions but also, members of the legal profession may be excused from complying with the law as ordinary members of the community must where that is for the proper protection of the client eg where legal professional privilege/client legal privilege applies. This often raises vexed issues and requires lawyers to walk a fine line. In Rondel -v- Worsley [1969] 1 AC 191 at 227; [1967] All ER 993 at 998 Lord Reid put the duty to the client and to the Court in perspective: Every Counsel has a duty to his client fearlessly to raise every issue, advance every argument and ask every question, however distasteful, which he thinks will help his client s case. But, as an officer of the Court concerned in the administration of justice, he has an overriding duty to the Court, to the standards of his profession, and to the public, which may and often does lead to a conflict with his client s wishes or with what the client thinks are his personal interests. Counsel must not mislead the court, he must not lend himself to casting aspersions on the other party or witnesses for which there is no sufficient basis in the information in his possession, he must not withhold authorities or documents which may tell against his clients but which the law or the standards of his profession require him to produce.5 The Law Society s Role: The Ethics Section and the Ethics Committee Ethical dilemmas constantly arise for the profession in dealing with the conflicts between the various duties owed by solicitors. The Ethics Section of the Professional Standards Department of the Law Society of New South Wales, which I head as Senior Ethics Solicitor, receives well over 2,000 Ethics enquiries per year. Most of these involve conflict of interest and many involve communications, problems concerning confidentiality, misleading and assisting fraudulent activity. The issue of turning a blind eye in the context of legal practice and bearing in mind the lawyer s professional responsibility is very much a live issue and highly relevant to the problems which confront solicitor advocates. The functions of the Ethics Section include: recognising, considering and acting upon policy issues involving ethical principles affecting solicitors in New South Wales; resolution of disputes involving ethical issues; complaint prevention and education. Matters which are particularly contentious or involve policy are referred to the Ethics Committee which is a committee of the Council of the Law Society of New South Wales. The matters referred from the Ethics Section to the Ethics Committee comprise a small proportion of the Ethics Section s work. The Solicitor/Client Relationship The solicitor/client relationship is the basis of professional practice. It is a relationship which obviously brings rewards but which also carries with it onerous responsibilities, risks and pressures. The duty to the client is often described as paramount. This obviously means that in conducting a matter for a client your primary consideration is the client s best interests, not those of the opposing party or anyone else including yourself. However, the duty to the client cannot override the other duties referred to above.6 A forceful commentary on the solicitor/client relationship is found in Tyrrell - v- Bank of London (1862) 10HLC26 where at pp Lord Westbury said: there is no relation known to society, of the duties of which it is more incumbent upon a court of justice strictly to require a faithful and honourable observance, than the relation between solicitor and client. There are many ways in which acting in accordance with the client s wishes, and therefore on the face of it in accordance with the client s interests, will interfere with the due administration of justice referred to by Lord Reid (see above.) The crucial points in the Statement of Ethics and its acknowledgment of the lawyer s role of upholding the rule of law and serving the community in the administration of justice vis-à-vis the solicitor s duty to the court are that lawyers should: Act frankly and fairly in all dealings with the courts. Be trustworthy. Crucial points vis-à-vis the solicitor/client relationship that lawyers should: Serve their clients interests competently. Communicate clearly with their clients. Keep the affairs of clients confidential, unless otherwise required by the law. Maintain and defend the rights and liberty of the individual. Avoid any conflict of interest. Importantly, in terms of the balancing act which must be observed in putting the lawyer s duties into context, the Statement of Ethics says: In fulfilling this role, lawyers are not obliged to serve the client s interests alone, if to do so would conflict with the duty which lawyers owe to the Court and to serving the ends of justice.7 The Rules deal in discrete chapters with: relations with clients; practitioner s duties to the Court; relations with other practitioners and relations with third parties. The Advocacy Rules appear in Rule 23 which states:- "Rules A.15 to A.72 apply to all legal practitioners (whatever may be their predominant style of practice) when they are acting as advocates. The term practitioner is used throughout these Rules to refer to legal practitioners acting as advocates whether they are person who practise only as barristers, or persons, who practise as solicitors, or as barristers and solicitors." The remainder of the Rules apply to all legal practitioners practising as solicitors, or as barristers and solicitors (which obviously includes solicitor advocates). The Advocacy Rules were introduced by adopting with appropriate amendments the Advocacy Rules applicable to members of the New South Wales Bar in order to ensure consistency among advocates from either branch of the profession. In practical terms this was necessary as it would be impractical to maintain different ethical standards where matters might be conducted on the one hand by a solicitor advocate and on the other hand by a barrister. Efficient Administration of Justice The thrust of the Advocacy Rules has historically been based on the duties of officers of the Court not to mislead the Court and to act with fairness and honesty towards other practitioners, others parties and witnesses while at the same time observing the duty to the client i.e. the proper administration of justice. Recent amendments have introduced a new dimension: the efficient administration of justice. These followed amendments to the Rules of the Supreme Court of New South Wales gazetted in January 2000, reflecting the changing face of the community, the legal system and the legal profession and the community expectations of them. It comes in the context of the increasing costs and increasing complexity of litigation both civil and criminal. The amendments to the Supreme Court Rules 1970 include the insertion after Rule 2 of the following:8 "Overriding purpose 3. (1) The overriding purpose of the rules, in their application to civil proceedings, is to facilitate the just, quick and cheap resolution of the real issues in such proceedings. (2) The Court must seek to give effect to the overriding purpose when it exercises any power given to it by the rules or when interpreting any rule. (3) A party to civil proceedings is under a duty to assist the Court to further the overriding purpose and, to that effect, to participate in the processes of the Court and to comply with directions and orders of the Court. (4) A solicitor or barrister shall not, by his or her conduct, cause his or her client to be put in breach of the duty identified in (3). (5) The Court may take into account any failure to comply with (3) or (4) in exercising a discretion with respect to costs." Part 52A rules 25 was amended to read: "Disobedience to rule, judgment or order 25. Where any person fails to comply with any provision of the rules or any judgment or a direction of the Court, the Court may order that person to pay the costs of any other person occasioned by the failure." Relevant for the profession the amendments to Rule 43 of Part 52A include Rules in relation to the liability of a solicitor. Rules 43(1) and 43(2) state:- "43 (1) Where costs are incurred improperly or without reasonable cause, or are wasted by undue delay or by any other misconduct or9 default, and it appears to the Court that a solicitor is responsible (whether personally or through a servant or agent), the Court may, after giving the solicitor a reasonable opportunity to be heard; (a) disallow the costs as between a solicitor and a solicitor's client, including disallowing the costs for any step in the proceedings; (b) direct the solicitor to repay to the client costs which the client has been ordered to pay to any other party; and (c) direct the solicitor to indemnify any party other than the client against costs payable by the party indemnified. (2) Without limiting the generality of Subrule (1), a solicitor is responsible for a default for the purposes of that Subrule where any proceedings cannot conveniently proceed, or can proceed only with the incurring of extra costs or with the inconvenience of the Court or another party to the proceedings, because of the failure of the solicitor: (a) to attend in person or by a proper representative; (b) to file any document which ought to have been filed; (c) to deliver any document which ought to have been delivered for use of the Court; (d) to be prepared with any proper evidence or account; (e) to comply with any provision of the rules or any judgement or order or direction of the Court; or (f) otherwise to proceed." This reflects the duty towards the Court and also the duty to act competently and diligently towards the clients, a duty encompassed in Rule 1.1 which says:-10 " A practitioner must act honestly, fairly, and with competence and diligence in the service of a client, and should accept instructions, and a retainer to act for a client, only when the practitioner can reasonably expect to serve the client in that manner and attend to the work required with reasonable promptness." The Advocacy Rules contain the following sub-headings: Efficient administration of justice. Duty to client. Independence avoidance of personal bias. Frankness in Court. Integrity of evidence. Duty to opponent. Integrity of hearings. Prosecutors' duties. The advocacy rules appear to be more detailed and more precisely applicable to particular situations than perhaps the other rules are. Consideration of these points emphasises the constant need to apply sound professional judgment. The other rules, outside the Advocacy Rules which particularly apply to solicitor advocates are the following: In the chapter "relations with clients" Rule 2 Confidentiality. Rule 3 Acting against a former client. Rule 5 -Termination of retainer11 Rule 6A Legal Aid Application Criminal proceedings. Rule 6B Legal Aid; Court of Criminal Appeal proceedings. Rule 9 Acting for more than one party. Rule 10 Avoiding a conflict between a client's and a practitioner's own interest. In the chapter "practitioners' duties to the Court" Rule 17 Preparation of affidavits. Rule 18 Duty not to influence witnesses. Rule 19 Practitioner a material witness in client's case. Rule 20 Admission of guilt. Rule 21 Admission of perjury. Rule 22 Bail. In the chapter "relations with other practitioners" Rule 25 Communications. Rule 31 Communicating with another practitioner's client. Copies of the Advocacy Rules and the other Rules specifically mentioned are included at the end of this paper. The Inefficient Administration of Justice?12 It is instructive to reflect on the description of the 19th Century Court of Chancery described by Charles Dickens in Bleak House. Consider this and contrast it with the modern day Court. "On such an afternoon, if ever, the Lord High Chancellor ought to be sitting here as here he is with a foggy glory round his head, softly fenced in with crimson cloth and curtains, addressed by a large advocate with great whiskers, a little voice, and an interminable brief, and outwardly directing his contemplation to the lantern in the roof, where he can see nothing but fog. On such an afternoon some score of members of the High Court of Chancery bar ought to be as here they are mistily engaged in one of the ten thousand stages of an endless cause, tripping one another up on slippery precedents, groping knee-deep in technicalities, running their goat-hair and horsehair warded heads against walls of words and making a pretence of equity with serious faces, as players might. On such an afternoon various solicitors in the cause some two or three of whom have inherited it from their fathers, who made a fortune by it ought, to be as are they not? ranged in a line, in a long matted well (but you might look in vain for truth at the bottom of it) between the registrar's red table and the silk gowns, with bills, cross-bills, answers, rejoinders, injunctions, affidavits, issues, references to masters, masters' reports, mountains of costly nonsense, piled before them." The depressing scene continues with the naming of this infamous cause, the case of Jarndyce and Jarndyce. Who would want to be involved in this matter? "Jarndyce and Jarndyce drones on. The scarecrow of a suit has, in course of time, become so complicated that no man alive know what it means. The parties to it understand it at least, that it has been observed that no two Chancery lawyers can talk about it for five minutes without coming to a total disagreement as to all the premises Jarndyce and Jarndyce still drags its dreary length before the Court, perennially hopeless has passed into a joke. That is the only good that has ever come of it How many people out of the suit of Jarndyce and Jarndyce has stretched forth its unwholesome hand to spoil and corrupt would be a very wide question." The chapter "practitioner's duties to the Court" in which the Advocacy Rules appear begins with the following preamble which does not form part of the Rules but is a statement of general principle intended to describe the underlying principles and objectives of the Rules:13 "Practitioners, in all their dealings with the courts, whether those dealings involve the obtaining and presentation of evidence, the preparation and filing of documents, instructing an advocate or appearing as an advocate, should act with competence, honesty and candour. Practitioners should be frank in their responses and disclosures to the Court, and diligent in their observance of undertakings which they give to the Court or their opponents." Interpretation and Practical Application of the Rules It is important and perhaps comforting to know that even experienced practitioners face ethical dilemmas which they cannot resolve easily. In the American Bar Association Journal of February last year the following comment appears: "The basic rules of professional conduct initially appear to be a fairly simple blueprint for appropriate behaviour by lawyers. But when applied to real situations, those black-letter rules often seem to blur into a pool of [gray]. Many ethics questions have been asked and answered enough times that practitioners can feel confident that they know where the lines are. But in some evolving areas of law, the lines are considerably less bright." You might agree, however, that the lines are not necessarily particularly bright even in established areas of the law. The new concept of the efficient administration of justice may not be difficult to accept into practice. The Rules Clearly the first step in avoiding a breach of the Rules is to have a good knowledge of their terms and their application.14 The duty to act competently and diligently Rule 1 This fits in with the requirement in Rule A15 that the practitioner must do work "which the practitioner is retained to do, whether expressly or implied, specifically or generally, in relation to steps to be taken by or on behalf of the client, in sufficient time to enable compliance with orders, directions, rules or practice note of the Court". Clearly sanctions will be imposed by the Court should its procedures not be complied with. The duty of confidentiality Rule 2 No information can be provided to the Court or to the other party without the client's authority. Acting against a former client Rule 3 Rule 3 requires that a solicitor should not act against a party where he or she has obtained confidential information from that party relevant to the current matter received as a result of a previous solicitor/client relationship and where that information could reasonably be perceived by the former client to be able to be used to his or her detriment in the proceedings. A solicitor may be placed in the difficult position of having acted for a witness whom he or she must cross examine. While Rule 3 does not apply specifically to that situation the duty of confidentiality arises. Example A solicitor acting for a client in a criminal matter in which he was defending the client on a charge of perjury arising from a workers compensation claim made the embarrassing discovery during the course of the committal hearing that he15 had, some time earlier, advised the witness about his role in the circumstances giving rise to the perjury charge. This then meant that he had to withdraw from acting for the accused because he felt he had, and certainly he could be perceived to have, information confidential to that person relevant to the defendant's defence giving rise to a conflict between the duty of disclosure to the present client and the duty of confidentiality to the former client. Acting for more than one party Rule 9 Rule 9 does not prevent a solicitor from acting for more than one party e.g. coplaintiffs in a civil action or co-defendants in a civil or criminal action but the solicitor must be satisfied at the outset that each knows the solicitor is acting for the other and that if a conflict arises he or she will have to withdraw from the matter entirely. This also brings into play Rule 3 considerations. This might particularly be likely to occur in a criminal matter where defendants decide to implicate each other. Termination of retainer Rule 5 A solicitor must complete what the solicitor is retained to do. This is reflected in Rules A15 and A15(a) of the Advocacy Rules. Rule 5, however, allows a practitioner to withdraw where he or she and the client have agreed, the client discharges the practitioner from the retainer or "the practitioner terminates the retainer for just cause, and on reasonable notice to the client". In relation to notice Rule 5.2 provides that a practitioner who has accepted instructions to act for a defendant required to stand trial in the Supreme Court or the District Court for a criminal offence must not terminate the retainer and withdraw from the proceedings on the ground that the client has failed to make satisfactory arrangements as to payment of costs without serving notice on the client of the practitioner s intention to terminate the retainer "at a time reasonable in advance of the date appointed for the commencement of the trial, or the commencement of the sittings of the Court in which the trial is listed".16 Example A solicitor acted for a client in an action against three hospitals. The solicitor's reporting expert was not supportive and Senior Counsel received a letter from the client criticising the solicitor quite unfairly. Lack of confidence by the client is a just cause for withdrawal as is conflict of interest and the receipt of information indicating that the client is not telling the truth (the last of which I will comment upon later). Preparation of affidavits Rule 17 Subrule 1 relates to the duty not to mislead the Court. If a practitioner is aware that a client is withholding information required by an order or rule of the Court, with the intention of misleading the Court; or informed by a client that an affidavit of the client, filed by the practitioner, is false in a material particular the practitioner must, on reasonable notice, terminate the retainer if the client will not make the relevant information available or allow the practitioner to correct the false evidence and give notice of his or her withdrawal from the proceedings without disclosing the reasons to the Court. This rule does not relate to preparation of affidavits on behalf of witnesses i.e. person who are not clients. This appears to be an anomaly. Example A solicitor prepared an affidavit sworn by a potential witness in a matter, an officer of a company. Settlement negotiations were about to begin and the solicitor wished to use the affidavit during the course of the negotiations. However, some information came to light which suggested that the facts17 deposed to in the affidavit might not be strictly accurate. The doubt about the affidavit arose from the solicitor's consideration of a file note sworn by the deponent. His question to the Society was whether the affidavit could nevertheless be used. It seemed that that might be misleading of the other side although it would not be misleading the Court. Were the affidavit filed in Court and the witness subjected to cross-examination the truth may have emerged but nevertheless the solicitor would have been potentially in a position of misleading the Court. Three decided cases involving misleading the Court in relation to preparation of affidavits are: Myers-v-Elman [1940] AC 282; [1939] 4 All ER 484 in which the House of Lord said a solicitor cannot simply allow the client to make whatever affidavit of documents he thinks fit, nor can he escape the responsibility of careful investigation or supervision a solicitor who has innocently put upon the file an affidavit by his client, which he subsequently discovers to be false, owes a duty to the Court to put the matter right at the earliest moment if he continues to act as solicitor on the record. A much more recent matter of Coe-v-New South Wales Bar Association BC ; [2000] NSWCA 13 concerns a barrister who was personally a party in Family Court proceedings who swore an affidavit verifying a Statement of Financial Circumstances which to his knowledge was untrue. The Legal Services Tribunal ordered that his name be removed from the Roll of Legal Practitioners following a finding of professional misconduct. In Re Thom [1918] 18 SR(NSW) 70; 35 WM (NSW) 9 dealt with a solicitor who drew an affidavit by a client in which she stated "I do not admit the allegations against my character" when the solicitor had knowledge that the facts deposed to were true.18 Allegations of fraud Rules 17.2 And A37 This issue is dealt with in Rules 17.2 and A37 (commented upon more fully below). Duty not to influence witnesses Rule 18 While it is well recognised that there is no property in witnesses nevertheless there are constraints when a solicitor wishes to communicate with a witness or a possible opposite party. This partly reflects the general "golden" rule against communicating with another solicitor's client and can arise either in the course of preparation for a hearing, during settlement negotiations or during the hearing. The Rule refers to "any matter or event which is the subject of adversarial proceedings before a Court" and prohibits a practitioner from conferring with or interviewing: the opposing party in the proceedings including a person who may be represented or indemnified in proceedings by an insurance company where the opposing party or a prospective opposing party is a corporation, any person authorised to make admissions on behalf of the corporation, or to direct the conduct of the proceedings. Exceptions are: if the other person, unrepresented by a practitioner, has been fully informed of the practitioner's purpose in conducting interview, has been advised to seek and to take the opportunity of obtaining independent legal advice or the practitioner acting for the other person has agreed to the interview on conditions which may include the conduct of the interview in the presence of both parties' practitioners.19 Example A solicitor acting for a proposed plaintiff injured in a motor vehicle accident during the course of his employment sought advice as to whether he could interview a potential defendant (the driver of the relevant motor vehicle) on issues of causation and safe system of work. The owner of the vehicle was the employer of both the potential plaintiff and the first defendant i.e. the passenger (client) and the driver. Strictly speaking Rule 18 did not apply because the matter was not yet "the subject of adversarial proceedings before a Court". If proceedings had been commenced then the solicitor could have contacted the driver (who he hoped would be able to give him information helpful to his client's case against the owner/employer) as long as the safeguards noted in Rule 18 were observed. However, a strong view was that as the Rule did not apply nor did the exceptions and ethically it would have been most undesirable for contact to be made. This issue is shortly to receive some further consideration. Practitioner a material witness in client's case Rule 19 Rule 19 prevents a solicitor advocate appearing as advocate in a case "in which it is known, or becomes apparent, that the practitioner will be required to give evidence material to the determination of contested issues before the Court". The Rule also goes on to provide that there may be exceptional circumstances which would allow a solicitor acting (i.e. not in the role of advocate) continuing to act but only if those "exceptional circumstances" exist. For an advocate particularly, logistical considerations apply. Moving between the bar table and the witness box might have practical difficulties apart from any other considerations. The basis of the Rule is really conflict of interest; the solicitor/witness' evidence might be detrimental to the client's case or, the opposite the evidence may assist but the Court may have difficulty in affording it the appropriate weight because the solicitor has an interest in seeing the matter succeed and the evidence may therefore be tainted. Riley's New South Wales Solicitors Manual 2000 edition deals with that last20 consideration. I have further material which may assist in considering some of the other finer points arising from the Rule. View more
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