delivered the opinion of the court:
This interlocutory appeal arises out of a defamation action filed by the plaintiff, Robert R. Thomas, a justice of the Illinois Supreme Court, against the defendants, Bill Page; Shaw Suburban Media Group, Inc., a division of Shaw Newspapers, an Illinois corporation, d/b/a the Kane County Chronicle; and Greg Rivara. In the underlying complaint, the plaintiff asserts claims for defamation and false light invasion of privacy based upon the publication of certain newspaper articles authored by Page and published in the Kane County Chronicle relating to the supreme court’s consideration and resolution of In re Gorecki,
During the course of these proceedings in the circuit court, the defendants caused the issuance of subpoenas which were served upon Supreme Court Justices Mary Ann G. McMorrow, Charles E. Freeman, Thomas R. Fitzgerald, Thomas L. Kilbride, Rita B. Garman, and Philip J. Rarick (hereinafter referred to as the “Non-Party Justices”) and their law clerks, seeking the production of all documents referring or relating to the Górecki Proceedings, the three articles authored by Page, and this suit. Additionally, the defendants caused the issuance of subpoenas for the depositions of the Non-Party Justices and their law clerks. The Non-Party Justices filed a motion to quash the defendants’ document subpoenas, asserting the “Doctrine of Judicial Privilege.” The circuit court entered an order finding that a judicial deliberation privilege protected communications between and among the Non-Party Justices but, nevertheless, ordered them to submit “a privilege log as per Supreme Court Rule 201(n)” (166 Ill. 2d R. 201(n)) to support their invocation of the privilege. On December 6, 2004, the circuit court entered an order staying all oral discovery from the Non-Party Justices and their law clerks. Thereafter, the circuit
Subsequently, the circuit court entered a written order finding that its resolution of the matters relating to the existence of a judicial deliberation privilege and its application in this case involve questions of law as to which there are substantial grounds for differences of opinion and that immediate appeal from its orders may materially advance the ultimate termination of this litigation. In its written order, the circuit court identified the following questions involved:
“a) Does Illinois or should Illinois recognize a judicial deliberation privilege?
b) If there is such a privilege, should it be applied in this case, which involves:
i) a sitting Supreme Court Justice’s suit for defamation and false light;
ii) defendants’ issuance of subpoenas to the non-party Justices, pursuant to which defendants seek documents relating to the underlying court proceeding and the instant action; and
iii) the non-party Justices’ motion to quash defendants’ subpoenas based upon the judicial deliberation privilege?
c) If there is such a privilege, does it extend to communications between or among:
i) Supreme Court Justices;
ii) a Supreme Court Justice and his or her own law clerks;
iii) a Supreme Court Justice and another Justice’s law clerk; or
iv) the Supreme Court law clerks?
d) Are the movant Justices exempt from the provisions of Supreme Court Rule 201(n)? and
e) If they are not exempt from complying with Supreme Court Rule 201(n), can they assert the claimed privilege without complying with said rule?”
The defendants and the Non-Party Justices filed a joint application for leave to appeal pursuant to Supreme Court Rule 308 (155 Ill. 2d R. 308), and we granted their application.
It is well-settled that a judge may not be asked to testify as to his or her mental impressions or processes in reaching a judicial decision. See Fayerweather v. Ritch,
In Williams, members of the staff of then-Judge Alcee J. Hastings commenced the action to enjoin the enforcement of subpoenas commanding their appearance before a committee of the Eleventh Circuit investigating charges that Judge Hastings had, inter alia, conspired to obtain a bribe in return for performing a judicial act. On appeal, the Williams court analyzed those cases which had found the existence of an executive privilege and concluded that the reasoning in those cases supported the existence of a judicial deliberation privilege. The privilege recognized in Williams encompasses “confidential communications among judges and their staffs in the performance of their judicial duties.” Williams,
The analysis employed by the Williams court satisfies the four-part test that Dean Wigmore established for the creation of a privilege against the disclosure of certain communications; namely:
“1. The communications must originate in a confidence that they will not be disclosed.
2. This element of confidentiality must be essential to the full and satisfactory maintenance of the relation between the parties.
3. The relation must be one which in the opinion of the community ought to be sedulously fostered.
4. The injury that would inure to the relation by the disclosure of the communication must be greater than the benefit thereby gained for the correct disposal of litigation.” (Emphasis in original.) 8 J. Wigmore, Evidence § 2285, at 527 (McNaughton rev. ed. 1961).
See also Illinois Educational Labor Relations Board v. Homer Community Consolidated School District No. 208,
Confidential communications between judges and between judges and the court’s staff certainly “originate in a confidence that they will not be disclosed.” Judges frequently rely upon the advice of their colleagues and staffs in resolving cases before them and have a need to confer freely and frankly without fear of disclosure. If the rule were otherwise, the advice that judges receive and their exchange of views may not be as open and honest as the public good requires. See Soucie v. David,
With respect to the third condition, we believe that there is a strong public policy favoring the protection of the confidentiality of intra-court communications made in the course of the judicial decision-making process. The very integrity of the process often rests on judges’ candid communications with their colleagues and staffs and, as a consequence, the confidentiality of such matters is a necessary component of the process. The purpose of protecting the confidentiality of such communications is designed to benefit the public, not the individual judges and their staffs. See Commonwealth v. Vartan,
The defendants argue that the recognition of a judicial deliberation privilege is not a determination that this court should make because, as a general matter, the recognition of new privileges is strongly disfavored in Illinois. To this end, they note that, when considering the question of whether a “deliberative process privilege” for government officials should be adopted in this state, our supreme court in People ex rel. Birkett v. City of Chicago,
Our analysis leads us to conclude that there exists a judicial deliberation privilege protecting confidential communications between judges and between judges and the court’s staff made in the course of the performance of their judicial duties and
We next address the question of whose communications are protected by the privilege. No further analysis is necessary to support the conclusion that communications between judges and between judges and their law clerks which fall within the scope of the privilege are protected from disclosure. The very rationale underlying a recognition of the privilege supports our conclusion in this regard. The question remains, however, whether that same protection is afforded to communications between a judge and another judge’s law clerk, or between law clerks.
Although law clerks are engaged by a specific judge and serve at his or her direction, the fact remains that they are members of the court’s staff. Albeit not an everyday occurrence, judges have been known to confer with another judge’s clerk and, when they do, those communications are entitled to no less protection than when the judge is conferring with his or her own clerk. If the judicial deliberation privilege did not extend to communications between a judge and another judge’s clerk, judges would certainly be reluctant to seek out the ideas and insights of another judge’s clerk in formulating their decisions and, as a result, judges would not avail themselves of the full resources of the court’s staff. We believe that the benefits which enure to the judicial decision-making process through the interchange of ideas between a judge and all of the members of the court’s staff would be diminished unless these communications remained confidential, including communications between a judge and another judge’s clerk.
The defendants argue that the privilege cannot be applied to communications between law clerks because they “are not cloaked with the responsibility or authority of judicial decision-making.” We disagree with the conclusion reached by the defendants in this regard. Although law clerks make no judicial decisions, they are certainly part of the judicial decision-making process. They assist the judges in understanding the legal issues involved in a case and they research those issues. Law clerks confer with the judges, and judges rely on the clerks’ ideas and insights in formulating decisions. In this process, clerks frequently discuss cases among themselves in order to clarify and distill the issues before discussing the relative merits of the case with the judge. Law clerks should be free to communicate with each other without fear that their perceptions regarding the merits of pending cases would later become public. Absent such protection, law clerks would forgo the opportunity to test their analysis of a case before conferring with their judges and, as a result, forfeit an opportunity to strengthen the integrity of the judicial decision-making process. We believe that, when law clerks communicate with each other concerning the court’s official business, their communications are protected by the judicial deliberation privilege to the same extent as their communications with a judge are. The rationale supporting the recognition of a judicial deliberation privilege covering communications among and between judges and between judges and their law clerks equally supports the application of the privilege to communications between law clerks.
In summary, we answer the third certified question and each of its subparts in the affirmative, and hold that the judicial deliberation privilege applies to communications among and between judges, between judges and their law clerks, between a judge and another judge’s law clerk, and between law clerks, provided that the communications are made in the course of the
Having determined both that Illinois recognizes a judicial deliberation privilege and what communications are protected from disclosure thereunder, we next address the nature of the privilege. The defendants argue that, assuming the existence of the privilege, we should find that it is qualified in nature. The Non-Party Justices, on the other hand, contend that the privilege should be deemed absolute.
There are crucial distinctions between an absolute and a qualified privilege. If information is protected from disclosure pursuant to an absolute privilege, “the opposing party cannot defeat the privilege by an ad hoc, case-specific showing of need for the privileged information.” E. Imwinkelried, The New Wigmore: A Treatise on Evidence § 3.2.4, at 139-40 (2002) (hereinafter Imwinkelried). In such a case, the appropriate inquiry is whether the information sought falls within the scope of the privilege. If it does, the information is protected from disclosure and the inquiry ends. By contrast, a qualified privilege can be defeated if the party seeking discovery of the privileged information can demonstrate that his or her need for the materials is sufficiently great to overcome the privilege. Imwinkelried, § 7.2, at 1040; Williams,
The defendants correctly note that the Williams court held that the judicial deliberation privilege is qualified in nature and, as such, can be overcome by a sufficient showing of need. Extracting the rationale from those cases which found the executive privilege to be qualified, the Williams court stated that “[l]ike any testimonial privilege, the judicial [deliberation] privilege must be harmonized with the principle that ‘the public *** has a right to every man’s evidence’ ” (Williams,
In the case of State ex rel. Kaufman v. Zakaib,
We have already concluded that the judicial deliberation privilege is narrowly tailored, applying only to intra-court communications made in the course of the judicial decision-making process and concerning the court’s official business. We believe that the narrowness of the scope of the privilege militates in favor of holding that it is absolute, rather than qualified. The overriding public good requires that judges be able to confer with each other and their staffs freely and frankly without fear that their communications might be publically disclosed. Anything less than the protection afforded by an absolute privilege would dampen the free exchange of ideas and adversely affect the decision-making process. Accordingly, we hold that the judicial deliberation privilege which we recognize today is absolute in nature.
Before addressing the remaining three questions and their subparts, we will comment briefly on certain basic principles underlying appeals pursuant to Supreme Court Rule 308. As this court has observed in the past, Rule 308 was intended to be used sparingly and limited to those exceptional circumstances when an interlocutory order of the trial court involves a “question of law as to which there is substantial ground for difference of opinion and that an immediate appeal from the order may materially advance the ultimate termination of the litigation.” (Emphasis added.) 155 Ill. 2d R. 308(a); Morrissey v. City of Chicago,
In this case, the second question certified by the trial court and its subparts are not questions of law. Rather, they constitute inquiries as to how the law should be applied to the specific facts of this case. The fifth certified question involves the application of a supreme court rule governing discovery. If these questions had been certified independently, we would never have granted an application for leave to appeal pursuant to Rule 308. However, in the main, these questions involve nothing more than a simple application of our answers to questions one, three, and four. Consequently, in the interests of judicial economy, we will address all of the remaining questions to the extent that we are capable based upon the record before us.
The second certified questions asks us to determine whether the judicial deliberation privilege should be “applied in this case, which involves: i) a sitting Supreme Court Justice’s suit for defamation and false light [invasion of privacy]; ii) defendants’ issuance of subpoenas to the non-party Justices, pursuant to which defendants seek documents relating to the underlying court proceeding and the instant action; and iii) the non-party Justices’ motion to quash defendants’ subpoenas based on the judicial deliberation privilege”. Having determined that the
In their appellate briefs, the parties address the question of whether, by reason of the plaintiff having filed this litigation, the judicial deliberation privilege has been waived, even as to communications among and between the Non-Party Justices and their clerks. Clearly, the issue of waiver is of significant importance in this case and any analysis of the issue must necessarily address the question of whether the judicial deliberation privilege belongs to judges and the members of a court’s staff as individuals or to the court itself. Yet to be determined is whether any individual judge in a multi-judge tribunal can waive the privilege without the consent of a majority of his or her colleagues. However, the issue of waiver was never meaningfully addressed below and a question of law relating to the issue has not been certified for our review by the circuit court. As a general matter, the scope of review in an interlocutory appeal brought pursuant to Supreme Court Rule 308 is limited to the specific questions of law certified by the circuit court. P.J.’s Concrete Pumping Service, Inc. v. Nextel West Corp.,
The final two certified questions ask that we consider whether the Non-Party Justices are exempt from complying with the requirements of Supreme Court Rule 201(n) (166 Ill. 2d R. 201(n)) and, if they are not exempt, whether they “can” assert the judicial deliberation privilege without complying with the rule.
Supreme Court Rule 201(n) provides:
“When information or documents are withheld from disclosure or discovery on a claim that they are privileged pursuant to a common law or statutory privilege, any such claim shall be made expressly and shall be supported by a description of the nature of the documents, communications or things not produced or disclosedand the exact privilege which is being claimed.” 166 Ill. 2d R. 201(n).
Nothing in the language of the rule or its history suggests that anyone is exempt from compliance by virtue of his or her office or position. Consequently, as a general statement, the Non-Party Justices are not exempt from compliance with the provisions of the rule merely by virtue of their office or by reason of the fact that they have invoked the judicial deliberation privilege. We, therefore, answer the fourth certified question in the negative.
The fifth certified question asks whether the Non-Party Justices “can” assert the judicial deliberation privilege without complying with Rule 201(n). In answering this question, we must address two issues; namely, whether a privilege may ever be asserted without compliance with Rule 201(n), and what is required in order to comply with the rule.
Ordinarily, “ ‘[o]ne who claims to be exempt by reason of privilege from the general rule which compels all persons to disclose the truth has the burden of showing the facts which give rise to the privilege. “His mere assertion that the matter is confidential and privileged will not suffice.” ’ ” Cox v. Yellow Cab Co.,
“Request No. 1” contained in the document request attached to the subpoenas served upon the Non-Party Justices commands the production of “[a]ll documents relating or referring to the disciplinary case captioned In re: Mary Elizabeth Górecki, No. 96299 before the Illinois Supreme Court, including but not limited to inter-court memoranda among the Justices of the Illinois Supreme Court and notes of any conversations with another Justice.” However, as we have already determined, these documents are absolutely protected from disclosure under the judicial deliberation privilege, and one need look no further than the face of the request itself to so conclude. Consequently, as to the documents sought pursuant to the defendants’ “Request No. 1,” the Non-Party Justices need not comply with the provisions of Rule 201(n) in order to invoke the judicial deliberation privilege. We do not reach the same conclusion, however, with respect to the remaining documents sought by the defendants in the subpoenas served upon the Non-Party Justices.
The remaining documents sought by the defendants consist of communications involving the plaintiff and concerning the three articles written in the Kane County Chronicle and those relating to this litigation. Contrary to the assertions of the Non-Party Justices, it cannot be
Based upon our answer to the fifth certified question, we vacate those portions of the circuit court’s order requiring that the Non-Party Justices: (1) comply with Rule 201(n) in order to invoke the judicial deliberation privilege in relation to the documents sought by the defendants in “Request No. 1” attached to their document subpoenas; and (2) “file a privilege log.”
Certified questions answered; orders vacated in part and cause remanded.
CAHILL and O’BRIEN, JJ., concur.
