and Unfair Competition Law (Bus. & Prof. Code, § 17200 et seq., UCL). The People
allege Credit One, either directly or through vendors, engaged in debt collection activities
“that involve unreasonably frequent and harassing phone call patterns and conduct.” The
lawsuit seeks injunctive relief, civil penalties, restitution to victims, costs of suit, and
other equitable relief.
Credit One propounded written discovery, and the People responded. In April
2023, the People served written objections and responses to 14 requests for production of
documents, 33 special interrogatories, and a set of form interrogatories. The People’s
production included thousands of pages of documents. In March 2024, the People served
objections and responses to 18 requests for admissions and another response to form
interrogatories.
3
In January 2024, Credit One noticed the deposition of the People’s PMQ. The
notice identified 25 topics for testimony and requested production of two categories of
documents. The first 15 topics sought testimony about allegations in the complaint and
the People’s investigation before filing the complaint. The next eight topics sought
testimony about the People’s communications with various third parties regarding Credit
One or the complaint’s allegations, including a catch-all that would cover
communications with any third parties “relevant to the allegations.” The 24th topic
sought names, addresses, phone numbers, and other identifying information for each
person with whom the People communicated regarding “any of the facts alleged” in the
complaint or “in the course of [the People’s] investigation of the facts alleged” in the
complaint. The last topic sought testimony on the documents the People will rely on at
trial. The two document requests encompass any documents the PMQ “reviewed or
relied upon to provide testimony” on the first 21 of the 25 topics, as well as any
documents in the People’s possession that “relate in any way” to those 21 topics.
In February 2024, the People served Credit One with objections to the deposition
notice and moved to quash. The court denied the motion without prejudice, instructing
the People to refile it as a motion for a protective order under section 2025.420. The
People did so in June 2024.
In a written order, the court granted in part and denied in part the People’s motion
for a protective order. The trial court found “it is proper in an action such as this for a
defendant to notice the deposition of ‘The People of the State of California,’ and that the
4
government agencies who are bringing the action are required by [section 2025.230] to
designate the individuals who are most qualified to testify on their collective behalf as to
the matters specified in the deposition notice ‘to the extent of any information known or
reasonably available’ to them.”
The court, however, modified the topics. It deleted the 24th topic, finding an oral
deposition was an “inefficient and unnecessarily burdensome method of gathering the
information responsive to the topic.” The court eliminated the 25th topic because it
sought information privileged as attorney work product: “defendant may certainly
discover what evidence the People possess, but may not discover what evidence the
People have decided to present.” The court also excluded any “internal discussions
within or between the four district attorney’s offices as to the merits of bringing the
action, whether the complaint should be filed, what witnesses to interview or to obtain
statements from, what documents or other evidence should be gathered, how the litigation
should be conducted, what legal theories to pursue, or what evidence the People have
decided to present at trial.” The court reframed the remaining topics, ordering that the
identity of witnesses with whom the People have communicated, the content of the
statements the witnesses made, and any documents the witnesses provided, “may be
discovered, as it relates to” 11 specified categories. The court also allowed discovery of
5
the identity of any other “witness with whom the People communicated” about Credit 2 One.
As to the document requests, the court ordered: “the People shall produce the
documents reviewed by the person(s) [designated] to testify on their behalf (category 1)
but category two is overbroad and no documents need be produced in response to it
except for documents constituting the communications or the documents received from
the witnesses, vendors, regulators, consumer organizations, law firms, credit agencies,
etc. or the witness statements referred to” in the reframed deposition topics. The court
required the People to prepare a privilege log for any claims of privilege, with the caveat
2 “The identity of witnesses with whom the People communicated, the content of statements they made, and any documents they provided, may be discovered, as it relates to; (a) defendant’s policies concerning the number of calls made to consumers per day, (b) who was contacted by defendant or any vendor(s) acting on defendant’s behalf, (c) the instructions given to vendors or defendant’s employees or agents concerning whom to contact, how often or when to make contact, and the methods used to make such contacts, (d) the contact information for California consumers as to whom defendant engaged in unlawful debt collection practices, (e) contacts with particular California consumers referred to in the complaint, (f) miscommunications, such as contacts to wrong numbers, (g) communications between defendant or its vendors to California consumers who disputed any aspect of their alleged debt owed to defendant or who requested that contacts cease[,] (h) complaints made by California consumers to any consumer organization, such as the Better Business Bureau, Consumer Sentinel Network, or Consumer Affairs or communications between the People and any such entity, (i) communications between the People and federal or state regulators, law firms who have litigated against defendant concerning alleged unlawful debt collection practices, or consumer organizations referenced in (h) concerning defendant’s allegedly unlawful debt collection practices, (j) communications with any credit agency concerning defendant, and (k) communications with any vendor or company who engaged in debt collection for defendant concerning such debt collection. If not covered by these topics, the identity of any witness with whom the People communicated concerning defendant.” In a footnote, the court set aside for later consideration, if necessary, whether communications with any California state regulator are privileged.
6
that “[d]ocuments that contain only internal communications within or between the four
district attorney’s offices shall not be produced and need not be identified on a log of
privileged documents.” That caveat was itself limited: “To the extent that a witness’s
statement is contained only in such a document, it shall be redacted and the portion
containing the witness’s statement produced (if it is otherwise ordered produced . . .).
However, if the witness’s statement is contained in another document, the internal
communication need not be produced.”
The People filed their writ petition challenging the court’s order in October 2024.
The same month, the California Attorney General filed an amicus letter supporting the
petition and urging us to “clarify that civil prosecutors bringing actions in the name of the
People are entitled to the same work product protections as all other attorneys.” In 3 December 2024, we issued an order to show cause.
DISCUSSION
A. Writ Review
Writ review of discovery rulings is generally disfavored. (O’Grady v. Superior
Court (2006) 139 Cal.App.4th 1423, 1439.) It is “ordinarily limited to situations
involving (1) an issue of first impression that is of general importance to the legal
profession, (2) an order denying discovery that effectively precludes a litigant from
having a fair opportunity to litigate his or her case, or (3) a ruling compelling discovery
3 Credit One agreed not to re-notice the PMQ deposition pending our ruling here, so the People did not request, and we did not order, a stay.
7
that violates a privilege.” (City of Petaluma v. Superior Court (2016) 248 Cal.App.4th
1023, 1031.)
Writ review is appropriate here for several reasons. The argument that the People
are not a person or entity subject to deposition under the Code of Civil Procedure has not
been considered in a published appellate decision. And there is a dearth of caselaw
addressing whether and how Carehouse applies in a civil enforcement action brought by
the People. Also, courts have held a discovery order allowing the deposition of opposing
counsel “is a suitable subject for prerogative writ review [citation], because the damage
done by improperly allowing such discovery cannot readily be cured after it has
occurred.” (Spectra-Physics, Inc. v. Superior Court (1988) 198 Cal.App.3d 1487, 1493
(Spectra-Physics); see Carehouse, supra, 143 Cal.App.4th at pp. 1566-1567 [writ relief
granted from order allowing deposition of opposing counsel].) Here, the parties dispute
whether the trial court’s order in effect allows the deposition of opposing counsel.
Discovery orders are generally reviewed for abuse of discretion. (Costco
Wholesale Corp. v. Superior Court (2009) 47 Cal.4th 725, 733 (Costco); see Nativi v.
Deutsche Bank National Trust Co. (2014) 223 Cal.App.4th 261, 316-317 [“‘[T]he
issuance and formulation of protective orders are to a large extent discretionary’”].)
“‘Where there is a basis for the trial court’s ruling and the evidence supports it, a
reviewing court will not substitute its opinion for that of the trial court.’” (OXY
Resources California LLC v. Superior Court (2004) 115 Cal.App.4th 874, 887.) “An
8
abuse of discretion is shown when the trial court applies the wrong legal standard.”
(Costco, at p. 733.)
B. Persons and Entities Within California Subject to Deposition
“The Civil Discovery Act sets out six methods by which litigants can obtain
pretrial disclosure of relevant information: (a) depositions; (b) interrogatories; (c)
inspections of documents, things, and places; (d) physical and mental examinations; (e)
requests for admissions; and (f) exchanges of expert trial witness information.” (City of
Los Angeles v. PricewaterhouseCoopers, LLP (2024) 17 Cal.5th 46, 61; see § 2019.010.)
“The procedures relevant to discovery under each of these six methods are outlined in
different chapters of the Act.” (Ibid.) Chapter 9 governs oral depositions inside
California. (§§ 2025.010-2025.620)
“‘In establishing the statutory methods of obtaining discovery, it was the intent of
the Legislature that discovery be allowed whenever consistent with justice and public
policy.’” (Sinaiko Healthcare Consulting, Inc. v. Pacific Healthcare Consultants (2007)
2025(a) without change, except to conform the cross-references”].) There is no
indication, however, that the switch to a two-sentence format was motivated by anything
other than stylistic considerations; moving the non-restrictive modifying phrase
“including, but not limited to, a natural person, an organization such as a public or private
corporation, a partnership, an association, or a governmental agency” to a new sentence
and eliminating the serial use of the word “including” within a single sentence. If the
Legislature intended a substantive change, we would expect different language, expressly
delineating any intended exception to the otherwise all-encompassing definition of “any
person” to include “any party to the action.”
We agree with the trial court that, in a civil enforcement action brought by a
government agency (or, as here, several government agencies) on behalf of the People, it
is proper for the defendant to notice the People’s deposition under section 2025.010. The
procedures of section 2025.230 apply because neither the People, nor the government
agency, is a natural person.
13
C. Deposing the People’s counsel
The parties dispute whether deposing the People amounts to deposing the People’s
counsel. We find that it does, though that does not necessarily mean the deposition may
not be taken.
Deposing opposing counsel is disfavored for public policy reasons. (See Spectra-
Physics, supra, 198 Cal.App.3d at p. 1494.) Generally, “[c]ounsel should be free to
devote his or her time and efforts to preparing the client’s case without fear of being
interrogated by his or her opponent.” (Ibid.; accord Carehouse, supra, 143 Cal.App.4th
at p. 1563 [“Attorney depositions chill the attorney-client relationship, impede civility
and easily lend themselves to gamesmanship and abuse”].) Depositions of opposing
counsel disrupt the adversarial system and have limited usefulness due to the attorney-
client and work product privileges. (Spectra-Physics, at p. 1494.) Thus, “[d]epositions
of opposing counsel are presumptively improper, severely restricted, and require
‘extremely’ good cause—a high standard.” (Carehouse, at p. 1562.)
In considering the propriety of deposing opposing counsel in a particular case,
California applies a three-pronged test, adopted from the federal majority view articulated 4 in Shelton v. American Motors Corp. (8th Cir. 1986) 805 F.2d 1323, 1327 (Shelton).
4 The alternative federal test, articulated in In re Subpoena Issued to Dennis Friedman (2nd Cir. 2003) 350 F.3d 65, 72, is a somewhat more “flexible approach,” taking into consideration “the need to depose the lawyer, the lawyer’s role in connection with the matter on which discovery is sought and in relation to the pending litigation, the risk of encountering privilege and work-product issues, and the extent of discovery already conducted.” In practice, the federal courts have found the two tests are only “‘slightly different,’” and both create a presumption against deposing opposing counsel. [footnote continued on next page]
14
The test is: “First, does the proponent have other practicable means to obtain the
information? Second, is the information crucial to the preparation of the case? Third, is
the information subject to a privilege?” (Carehouse, supra, 143 Cal.App.4th at p. 1563.)
“Each of these prongs poses an independent hurdle to deposing an adversary’s counsel;
any one of them may be sufficient to defeat the attempted attorney deposition.” (Ibid.)
The proponent of the deposition “has the burden of proof to establish the predicate
circumstances for the first two prongs,” while the party opposing discovery has the
burden of establishing the preliminary facts to support any claim of privilege. (Ibid.)
Credit One disavows any intention to depose the People’s counsel. Instead, it
proposes, the district attorneys may “educate any of the nearly 650 investigators spread
across its offices to serve as its Person Most Qualified deponent.” In Credit One’s view,
therefore, Carehouse and similar authority do not apply here. The People’s view is that
those who investigated the case were either attorneys or investigators acting at the
direction of attorneys, so any deposition on the noticed topics, even as limited by the trial
court, is in practical effect a deposition of the People’s counsel. The People conclude on
that basis the issue should be analyzed under the rubric applicable to attempts to depose
opposing counsel.
There is no California appellate authority that resolves this disagreement. Credit
One cites People v. Venice Suites, LLC (2021) 71 Cal.App.5th 715, 722-723 (Venice
(Monster Energy Co. v. Vital Pharm., Inc. (C.D. Cal. Mar. 10, 2020, No. 5:18-cv-01882- JGB (SHKx)), 2020 U.S. Dist.LEXIS 87320, [20].) The Ninth Circuit has not established a standard for when a party may depose opposing counsel, and the district courts in the circuit have used both alternatives. (Id. at [19].)
15
Suites) as an example of a case where, in a civil enforcement action that included a claim
of unlawful business practices, the People designated a person most qualified to testify on
its behalf. Venice Suites mentions that deposition testimony by the People’s PMQ,
apparently on the issue of the City of Los Angeles’s interpretation of certain municipal
code provisions, supported a defendant’s motion for summary adjudication. (See id. at p.
723 & fn. 3.) But Venice Suites does not address our issue. (See Styne v. Stevens (2001)
26 Cal.4th 42, 57 [“An opinion is not authority for a point not raised, considered, or
resolved therein”].) Certainly, the People may designate a PMQ to be deposed on a
noticed topic, and the PMQ may be one of its attorneys. (See Sinaiko, supra, 148
Cal.App.4th at p. 402 [because civil discovery is “‘“essentially self-executing,”’” and
“[g]enerally, the parties may modify the statutory discovery procedures” by stipulation,
“the trial court does not usually consider either the propriety of a party’s discovery
demand or the adequacy of a party’s response unless a dispute arises”].) Our issue is
whether the People can be compelled to do so, and the standard to apply in making that
determination.
Similar questions have been considered by federal courts when depositions are
noticed under rule 30(b)(6) of the Federal Rules of Civil Procedure. “‘Because of the
similarity of California and federal discovery law, federal decisions have historically
been considered persuasive absent contrary California decisions.’” (See Ellis v. Toshiba
America Information Systems, Inc. (2013) 218 Cal.App.4th 853, 861-862, fn. 6.) Rule 30
uses language similar to section 2025.010 to authorize depositions, stating that “[a] party
16
may, by oral questions, depose any person, including a party, without leave of court . . . .”
(Fed. Rules Civ. Proc., rule 30(a)(1).) And, like California discovery laws, the federal
rules “were designed to provide a ‘liberal opportunity for discovery.’” (Yousuf v.
Samantar (D.C. Cir. 2006) 451 F.3d 248, 254 [holding that non-party Department of
State was a “person” subject to subpoena duces tecum].) Unfortunately, on the issue at
hand, there is no discernable consensus or even majority approach.
For example, in SEC v. Buntrock (N.D. Ill. 2003) 217 F.R.D. 441 (Buntrock), a
civil fraud enforcement action, the defendant sought to depose someone from the United
States Securities and Exchange Commission (SEC) who could testify on 12 topics that
“basically involve[d] the results of the SEC’s investigation.” (Id. at p. 443.) As the
People do here, the SEC objected that the only people who investigated the case were
either SEC attorneys or SEC investigators acting at the direction of SEC attorneys, so the
deposition would “necessarily involve the testimony of attorneys assigned to [the] case,
or require those attorneys to prepare other witnesses to testify.” (Id. at p. 444.) The
district court agreed with the SEC, finding the defendant sought, “if not the deposition of
opposing counsel, then the practical equivalent thereof.” (Id. at p. 445.) Applying the
Shelton factors, the court found the defendant had failed to make the required showing.
(Buntrock, at p. 445.) To the extent the defendant sought “the ‘facts’ that support the
SEC’s allegations,” they were “available” in the “staggering amount of evidence” the
SEC had already produced in written form. (Ibid.) The court viewed the deposition as
seeking “not really mere facts,” but instead “the SEC’s theories as to the underlying facts,
17
how it intends to marshal those facts, and its belief as to the inferences that may be drawn
from those facts.” (Id. at pp. 445-446.) On that basis, the court issued the SEC a
protective order and quashed the deposition notice. (Id. at pp. 446, 448.)
Similar facts and similar arguments yielded a different result in SEC v. Merkin
(S.D. Fla. 2012) 283 F.R.D. 689 (Merkin). Again, the case was a civil enforcement
action, in which the defendant sought to depose the SEC about the results of its
investigation. (Id. at pp. 691-692.) The SEC argued, among other things, that “the
request was tantamount to an effort to take the deposition of SEC counsel,” and that
“either SEC counsel or an investigator prepared by SEC counsel would need to appear as
the [deponent] for the Government.” (Id. at p. 694.) The district court rejected that
perspective, instead applying the “general proposition” that “government agencies
embroiled in litigation are subject to the same discovery rules as private litigants,
regardless of the level of government to which the agency belongs.” (Id. at p. 696.) The
court found no “meaningful distinction” between “an SEC attorney preparing a
government investigator as the designee” and “a private attorney preparing the client’s
current or former employees” for a deposition because “[t]he privilege argument is
identical.” (Ibid.) The district court narrowed the noticed topics to eliminate some it
viewed as “irrelevant and/or overly broad,” and confirmed that the SEC could instruct its
witnesses not to answer questions that required disclosure of privileged information but
permitted the deposition to proceed. (Id. at p. 698.)
18
Both the Buntrock and Merkin approaches have been followed recently. (Compare
SEC v. Princeton Alternative Funding, LLC (D. N.J., Jan. 8, 2025, No. 21-12971
(RK)(JBD)) 2025 U.S. Dist. LEXIS 3553, [16] [citing Buntrock, stating “In case after
case, courts have refused to permit depositions of SEC attorneys and other agency
counsel where those depositions would lead to questioning counsel about information—
even ‘factual’ information—obtained during pre-suit investigations.”] with SEC v.
Putnam (D. Utah Aug. 20, 2021, No. 2:20-cv-00301-DBB-DAO) 2021 U.S. Dist. LEXIS
they seek only to discover facts underlying the claims, not the mental impressions or
work product of the SEC’s counsel, the SEC can make no preemptive claim of
privilege”].) And this split is not limited to SEC civil enforcement actions. For example,
in Washington v. Alderwood Surgical Center, LLC (W.D. Wash. Apr. 30, 2024, No. 2:22-
CV-01835-RSM) 2024 U.S. Dist. LEXIS 78936, the district court rejected Buntrock
arguments by the Washington Attorney General and allowed the deposition to proceed on
topics seeking information about the state agency’s investigation, finding they “generally
seek factual information, not attorney mental impressions.” (Id. at [9].) In contrast, in
Kentucky v. Marathon Petroleum Company LP (W.D. Ky. June 26, 2018, No. 3:15-CV-
354-DJH) 2018 U.S. Dist. LEXIS 106176 (Marathon Petroleum), the court followed
Buntrock, finding deposing the Commonwealth would be the practical equivalent of
deposing opposing counsel, namely, attorneys in the Commonwealth’s Office of the
Attorney General. (Id. at [6]-7.) Applying the Shelton test, the court found the defendant
19
had not made the required showing of necessity and granted the Commonwealth’s request
for a protective order. (Id. at [13].)
We find the approach of cases like Buntrock and Marathon Petroleum most
appropriate for civil enforcement actions like this one, brought on behalf of the People by
a district attorney (or several of them). These government agencies are more akin to a
law firm than a corporation, staffed primarily by attorneys and non-attorneys who work at
their direction. (See Marathon Petroleum, supra, 2018 U.S. Dist. LEXIS 106176, at [9]
[“Unlike a corporation, which has non-attorney officers and directors who can properly
be designated as a 30(b)(6) representative, organizations like the [Office of the Attorney
General] do not have such individuals”].) And in this lawsuit, they serve as the People’s
legal representative. (See Gamestop, supra, 26 Cal.App.5th at p. 511.) Merkin may be
correct that the privilege concerns are the same, no matter whether an attorney is
preparing a government investigator or an employee of a corporate client for a PMQ
deposition. But the better analogy is to an attorney having to prepare a paralegal to be
deposed on behalf of their law firm about an investigation the firm conducted for a client.
The policy concerns raised by such a circumstance, addressed in cases like Shelton,
Carehouse, and Spectra-Physics, are not limited to privilege issues. The deposition may
be appropriate nevertheless, but the party who noticed it must show “‘extremely’ good
cause.” (Carehouse, supra, 143 Cal.App.4th at p. 1562.)
Thus, we hold that in a civil enforcement action brought by a district attorney (or a
similar government agency, like the state’s Attorney General) on behalf of the People, the
20
defendant may seek to depose the People’s person or persons most qualified under
section 2025.230. If the People seek a protective order, the trial court should analyze
whether the deposition should proceed using the Carehouse standard for depositions of
opposing counsel.
The trial court here took an approach like that of Merkin and similar cases,
ordering the agencies representing the People to designate a witness or witnesses to be
deposed on the noticed topics as modified without any finding that Credit One made a
showing of “‘extremely’ good cause.” (Carehouse, supra, 143 Cal.App.4th at p. 1562.)
The court’s choice to take such an approach was not unreasonable, in the absence of
binding authority requiring it to do otherwise. Nevertheless, we have found a
meaningfully different standard should be applied. The trial court therefore abused its
discretion. (Costco, supra, 47 Cal.4th at p. 733.)
The parties have argued how they believe the Carehouse factors should be
weighed in this case. We do not find it appropriate to decide that question here. (See
Richards v. CH2M Hill, Inc. (2001) 26 Cal.4th 798, 824 [“Because the standard we
announce is new, the proper course is to remand to the trial court for application” of that
test to the facts].) We are unpersuaded by Credit One’s arguments that the record shows
the Carehouse factors are necessarily satisfied. We will therefore remand the case for the
trial court to exercise discretion in the first instance under the standard clarified in this
opinion.
21
DISPOSITION
The petition for writ of mandate is granted. Let a writ of mandate issue directing
the respondent Superior Court of Riverside County to (1) vacate its order denying the
People’s motion for a protective order and (2) reconsider the motion in accordance with
this opinion.
The parties shall each bear their own costs in this proceeding.
CERTIFIED FOR PUBLICATION RAPHAEL J.
We concur:
McKINSTER Acting P. J.
MENETREZ J.
22
AI Brief
AI-generated · verify before citing
Holding. The People are subject to deposition as a party under Code of Civil Procedure section 2025.010, but because such depositions often implicate the work product and attorney-client privileges of the government's legal team, they are subject to the heightened 'extremely good cause' standard established in Carehouse Convalescent Hospital v. Superior Court.
Issues
Whether the People of the State of California are a 'person' or 'entity' subject to deposition under Code of Civil Procedure section 2025.010.
Whether a deposition of the People in a civil enforcement action is subject to the heightened standards for deposing opposing counsel.
Disposition. remanded
Quotations verified verbatim against the opinion
“We reject the notion that the People (through PMQs) may never be deposed, but Credit One must first demonstrate “‘extremely’ good cause” for the deposition.”