
High Court determines position on proportionate liability under the Design and Building Practitioner’s Act 2020 (NSW) – The Pafburn Case
High Court determines position on proportionate liability under the Design and Building Practitioner’s Act 2020 (NSW) – The Pafburn Case
Background
The High Court of Australia (HCA) recently assessed issues regarding proportionate liability raised pursuant to the Design and Building Practitioners Act 2020 (NSW) (DBPA) and the Civil Liability Act 2002 (NSW) (CLA), where ultimately, the issues may be revisited in subsequent cases due to the split 4:3 nature of the decision. In the lower Court’s assessment of the issues, the NSW Court of Appeal found that the developer and builder could not apportion their liability to the subcontractors that were utilised throughout conducting the works. Both the majority and minority judgements of the HCA provide important considerations for developers and builders when considering their risks and liabilities in construction projects which are captured by the DBPA and CLA.
Relevant Legislation
To understand concepts in the High Court’s judgement, we set out below the relevant sections in the DBPA and CLA.
Section 37 DBPA (Duty of Care)
Section 37 of the DBPA sets out the section 37 duty of care, namely, the duty to take reasonable care to avoid economic loss caused by defects. This duty of care is owed by persons who carry out construction work.
Sections 39 and Section 41 DBPA
Section 39 of the DBPA states that the section 37 duty of care is non-delegable, i.e. a person who carries out construction work cannot delegate (or subcontract) the duty of care to others.
Section 41 provides that Part 6 of the DBPA (which includes the above sections) is subject to the CLA.
Sections 5Q CLA and Part 4 CLA (proportionate Liability)
Section 5Q of the CLA states that if a person owes a non-delegable duty, then that person is vicariously liable to others it engaged to complete the works.
Section 39 of the CLA provides that, where a person is vicariously liable to another, then that person is also liable for the other person’s portion of liability.
Unhelpfully, for the purposes of interpretation, ‘non-delegable’ in section 5Q of the CLA is a reference to the concept’s common law meaning, whereas this concept has a different statutory meaning provided in section 39 of the DBPA.
What happened?
This matter was originally brought by the Owners of Strata Plan 84674 (Owners) after alleged defective work had been undertaken. The Owners brought the action against Pafburn Pty Ltd (Pafburn) as the builder and Madarina Pty Ltd (Madarina) as the developer (together, Appellants) where the Owners argued that the Appellants breached their statutory duty to exercise reasonable care to avoid economic loss caused by defects owed under section 37 of the DBPA.
Pafburn accepted its liability under the DBPA, however, defended that it should not solely be liable to the Owners for the alleged defective works, rather that they are able to proportion their liability to the subcontractors. The NSW Court of Appeal found that due to section 37of the DBPA, Pafburn was not able to proportion its liability noting it a non-delegable duty in the context of the CLA. Pafburn appealed this decision which brought forth the HCA’s findings.
Arguments brought to the HCA for determination
Each parties’ positions before the HCA were as follows:
Appellants arguments
The section 37 duty of care is owed by each person that “carries out construction work” (specifically section 37(1) DBPA) and reading it in this manner brings forth an apportionable claim per section 34 of the CLA.
Due to these sections being operative in this manner, the Appellants argued they are entitled to reduce their liability by that owed by the subcontractors and certifiers whose works they could not control, and that contributed to the alleged loss from the defective work.
Owners arguments
The Owners argued the Appellants each owe the section 37 duty of care and that section 39 of the DBPA makes this non-delegable.
Further, that section 5Q of the CLA and section 39 of the DBPA which the Owners assert applies, purports that the Appellants are vicariously liable for the work carried out by the subcontractors and certifiers.
The findings
The HCA decision was split 4:3 and their Honors’ reasonings are as follows:
Majority Judgement
The majority held:
- the section 37 duty of care when read together with section 39 of the DBPA imposes a non-delegable duty;
- section 5Q of the CLA applies to non-delegable duties, and as such a person can be vicariously liable for the negligence of those to whom the work was delegated;
- the proportionate liability scheme under Part 4 of the CLA does not apply to the duty imposed by section 37 of the DBPA;
- the Appellants cannot limit their liability by apportioning to other ‘concurrent wrongdoers’ (e.g., subcontractors and certifiers) because they are wholly liable for the economic loss caused by construction defects and vicariously liable for the persons they engaged; and
- the Appellants can pursue cross-claims against others (subcontractors and certifiers) for breach of any duty owed to them, to the extent that they are they are found liable to the Owners.
Minority Judgement
The Justices who formed the minority, found that section 37 of the DBPA is apportionable considering the following:
- that interpreting the DBPA as a whole, one must begin with the text of the law as opposed to an assumption on the reach or operation of a provision;
- weight was to be placed on the wording of section 37 of the DBPA. Doing this, the minority noted two key aspects, being that:
- section 37 creates a “statutory duty to take reasonable care to avoid economic loss caused by defects” and is imposed on “a person who carries out construction work”. The minority went on further to opine that “given the different ‘construction work’ each person ‘carries out’, the scope of the duty owed by each person is different”; and
- the s. 37 duty of care is owed to subsequent owners. The minority found this part was included to clarify that the duty is owed to an end user.
Section 39 of the DBPA does not turn the section 37 duty of care into the common law ‘non-delegable’ duty but rather ensures that a person who owes the duty of care cannot escape liability by assigning liability for the part of the work they completed. Their reasoning noted head contractors engage subcontractors to complete works in which the head contractors themselves are not experienced, or in work which they are not equipped to do, and as such it would seem to be unreasonable to make a head contractor strictly liable for work it did not and could not complete.
The minority also found that section 5Q of the CLA does not apply to the section 37 duty of care as:
- the section 37 duty of care imposes a duty to exercise reasonable care to avoid economic loss caused by defects which cannot be delegated;
- section 5Q of the CLA is concerned with a non-delegable duty of strict liability to ensure reasonable care is taken;
- the section 37 duty of care is not a duty of strict liability;
- the s. 5Q provision is concerned with the common law non-delegable duties;
- a “non-delegable duty is not a “duty of care” but the section 37 duty of care expressly states that it is a duty of care; and
- further, a ‘non-delegable duty’ is owed by the employer alone, whereas the section 37 DOC is owed by all workers carrying out construction work.
The final decision
The final decision that sections 37 and 39 of the DBPA, and section 5Q of the CLA (excluding Part 4 of the CLA) provides that the Appellants in this instance are wholly responsible for ALL works and thus owed a duty of care to the Owners.
It then speaks to the aspect, that if the Appellants want to ‘apportion’ their liability, they are legally entitled to do so only once the economic loss claimed is determined, and then by way of cross claim the Appellants seeking to apportion the liability to the subcontracting parties.
The majority decision was concluded by noting that the Owners now have to prove the Appellants caused the economic loss that they are claiming.
Final thoughts
This decision is a big decision in that the High Court was split so it is reasonable to assume that the law should expect a change to clarify these relevant liability provisions.
It is now set out that in instances where an owner of a property desires to bring a claim under the DBPA for defective works, the developer and builder, in their relevant capacities, are not able in the first instance in the consideration whether the works caused damage, to apportion this liability to those individuals and companies they engaged to complete the works.
A builder/developer, however, may bring claims against subcontractors responsible for the defective works, by way of a cross-claim, to recoup the moneys it paid to the owner.
It is therefore imperative that a developer carefully considers its contractual positions with all subcontractors it engages on projects, to ensure that a developer can recoup from the subcontractors if it is found that the developer breached the DBPA to the extent such breach related to a subcontractor’s work.
It is our expectation that there will be more coming in relation to this case.
If you have any questions, please contact the team at Keighran Legal + Advisory.
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