DRJ v Commissioner of Victims Rights (No 2) [2020] NSWCA 242

Court of Appeal Supreme Court New South Wales Medium Neutral Citation: DRJ v Commissioner of Victims Rights (No 2) [2020] NSWCA 242 Hearing dates: 11 June 2020 Decision date: 02 October 2020 Before: Bell P at [1]; Meagher JA at [42]; Leeming JA at [43]. Decision: Summons dismissed with costs. Catchwords: CONSTITUTIONAL LAW - State Constitution - extra-territorial operation of legislation - power to provide for - drafting techniques - desirability of providing explicit legislative guidance as to intended territorial reach of laws STATUTORY INTERPRETATION - legal presumptions - presumption of territoriality - Interpretation Act 1987 (NSW) s 12 - applicants were women of Yazidi ethnicity - plaintiffs claimed they were victims of acts of violence perpetrated upon them in Northern Iraq and Syria by a man who had previously lived in New South Wales - Commissioner and NCAT dismissed application for support because acts of violence did not occur in New South Wales - plaintiffs submitted sufficient connection with New South Wales - nature of territorial nexus of Victims Rights and Support Act 2013 (NSW) with New South Wales - consideration of history and construction of s 12 Interpretation Act, extraterritorial legislative capacity, counterparts and precursors to victims compensation schemes - displacement of legal presumptions - appeal dismissed Legislation Cited: Acts Interpretation Act 1901 (Cth), s 21 Acts Interpretation Act 1931 (Tas), s 27 Acts Interpretation Act 1954 (Qld), s 35 Acts Shortening Act 1852 (NSW) (16 Vict No 1), s 8 Acts Shortening Act 1858 (NSW) (22 Vict No 12), s 1 Administrative Decisions (Judicial Review) Act 1977 (Cth) Australia Act 1986 (Cth), s 2 Australia Act 1986 (UK), s 2 Australian Border Force Act 2015 (Cth), s 7 Australian Constitutions Act (No 2) 1850 (Imp) 13 & 14 Vict c 59 Biodiversity Conservation Act 2016 (NSW), s 12.25 Building and Construction Industry Security of Payment Act 1999 (NSW), s 32E Cataract and Nepean Bridges Act 1852 (NSW) 16 Vict Civil Liability Act 2002 (NSW), ss 5N, 5J Commonwealth Constitution, ss 51, 106, 122, 125 Competition and Consumer Act 2010 (Cth), s 5 Constitution Act 1975 (Vic), s 16 Corporations Act 2001 (Cth), s 908AF Crimes Act 1900 (NSW), ss 10A, 10B, 10C, 10D, 10E, 437, s 527C Criminal Code Act 1995 (Cth), s 272.6 Criminal Injuries Compensation Act 1967 (NSW) Criminal Injuries Compensation Act 2003 (WA) Criminal Law Amendment Act 1883 (NSW) (46 Vict No 17), ss 54, 416, 417 Fair Trading Act 1987 (NSW), s 5A Farm Produce Agents Act 1926 (NSW), s 23 Gunpowder Magazine Act 1852 (NSW) 16 Vict 47 Industrial Relations Act 1996 (NSW), s 106 Interactive Gambling Act 2001 (Cth), s 14 Interpretation Act 1850 (UK) (13 & 14 Vict c 21), s 4 Interpretation Act 1897 (NSW), s 17 Interpretation Act 1978 (NT), s 38 Interpretation Act 1987 (NSW), ss 5, 12, 31, 33, 34A Interpretation of Legislation Act 1984 (Vic), s 48 Law Reform (Miscellaneous Provisions) Act 1946 (NSW), s 6 Legal Profession Act 1987 (NSW), s 80 Legal Profession Uniform Law 2014 (NSW), s 4 Legislation Act 2001 (ACT), s 122 Migration Act 1958 (Cth), s 228A Mining Act 1992 (NSW), s 387B National Energy Retail Law 2012 (NSW), s 17 Pesticides Act 1999 (NSW), s 33 Petroleum (Onshore) Act 1991 (NSW), s 129A Privacy Act 1988 (Cth), s 5B Protection of the Environment Operations Act 1997 (NSW), ss 109, 212B Railways Gauge Act 1852 (NSW) 16 Vict 5 Road Vehicle Standards Act 2018 (Cth), s 10 Statute of Westminster 1931 (UK), s 3 Student Assistance Act 1973 (Cth), s 342 Supreme Court Act 1970 (NSW), ss 48, 69 The New South Wales Steam Navigation Act 1852 (NSW) 16 Vict 46 Victims Compensation Act 1987 (NSW) Victims of Crime Act 2001 (SA), s 17 Victims of Crime Assistance Act 1976 (Tas), s 4 Victims of Crime Assistance Act 1996 (Vic), s 3 Victims of Crime Assistance Act 2006 (NT), s 5 Victims of Crime Assistance Act 2009 (Qld), s 25 Victims of Crime (Financial Assistance) Act 1983 (ACT), ss 4, 10 Victims of Crime (Financial Assistance) Act 2016 (ACT), s 7 Victims Rights and Support Act 2013 (NSW), ss 17, 19, 20, 21, 22, 23, 26, 31, 32, 51 Victims Support and Rehabilitation Act 1996 (NSW), s 5 Water Management Act 2000 (NSW), s 340D Work Health and Safety Act 2011 (NSW), s 155A Workers Compensation Act 1928 (Vic), s 5 Cases Cited: ACI Resources Ltd v Commissioner of Stamp Duties (NSW) (1986) 86 ATC 4810 American Banana Co v United Fruit Co 213 US 347 (1909) APLA Ltd v Legal Services Commissioner (NSW) (2005) 224 CLR 322; [2005] HCA 44 Australian Broadcasting Tribunal v Bond (1990) 170 CLR 321; [1990] HCA 33 Australian Securities Commission v Bank Leumi Le-Israel (1995) 134 ALR 101; [1995] FCA 1012 Balajan v Nikitin (1994) 35 NSWLR 51 Barcelo v Electrolytic Zinc Co of Australasia Ltd (1932) 48 CLR 391; [1932] HCA 52 Boensch v Pascoe [2019] HCA 49; 94 ALJR 112 Broken Hill South Ltd (Public Officer) v Commissioner of Taxation (NSW) (1937) 56 CLR 337; [1937] HCA 4 Cail v Papayanni (1863) 1 Moo PC (NS) 471 Chubb Insurance Company of Australia Ltd v Moore [2013] NSWCA 212; 302 ALR 101 Clark (Inspector of Taxes (UK)) v Oceanic Contractors Inc [1983] 2 AC 130 Commissioner of Stamp Duties (NSW) v Millar (1932) 48 CLR 618; [1932] HCA 63 Craig v South Australia (1995) 184 CLR 163; [1995] HCA 58 Croft v Dunphy [1933] AC 156 D151 v New South Wales Crime Commission (2017) 94 NSWLR 738; [2017] NSWCA 143 Deputy Commissioner of Taxation v Mutton (1988) 12 NSWLR 104 DRJ v Commissioner of Victims Rights [2019] NSWCATAD 195 DRJ v Commissioner of Victims Rights [2020] NSWCA 136 Fleming v White [1981] 2 NSWLR 719 Freehold Land Investments Ltd v Queensland Estates Pty Ltd (1970) 123 CLR 418; [1970] HCA 31 Goliath Portland Cement Co Ltd v Bengtell (1994) 33 NSWLR 414 Gosper v Sawyer (1985) 160 CLR 548; [1985] HCA 19 Grannall v C Geo Kellaway and Sons Pty Ltd (1955) 93 CLR 36; [1955] HCA 5, Hall v Jones (1942) 42 SR (NSW) 203 Hitchcock v Pratt (2010) 79 NSWLR 687; [2010] NSWSC 1508 Hocking v Director-General of the National Archives of Australia [2020] HCA 19 Hossain v Minister for Immigration and Border Protection (2018) 264 CLR 123; [2018] HCA 34 Hunt v BP Exploration Co (Libya) Ltd (1980) 144 CLR 565; [1980] HCA 7 Huntingdale Village Pty Ltd (receivers and managers appointed) v Corrs Chambers Westgarth [2018] WASCA 90; 128 ACSR 168 Hyde v Agar (1998) 45 NSWLR 487 Insight Vacations Pty Ltd v Young (2011) 243 CLR 149; [2011] HCA 16 Kay's Leasing Corporation Pty Ltd v Fletcher (1964) 116 CLR 124; [1964] HCA 79 Knightsbridge Estates Trust Ltd v Byrne [1940] AC 613 Lavender v Director of Fisheries Compliance, Department of Industry Skills and Regional Development [2018] NSWCA 174; (2018) 336 FLR 37 Law Society of New South Wales v Glenorcy Pty Ltd (2006) 67 NSWLR 169; [2006] NSWCA 250 Lipohar v The Queen (1999) 200 CLR 485; [1999] HCA 65 Livingston v Commissioner of Stamp Duties (Qld) (1960) 107 CLR 411; [1960] HCA 94 Macleod v Attorney General for New South Wales [1891] AC 455 Masson v Parsons [2019] HCA 21; 93 ALJR 848 McMillan v Mannix (1993) 31 NSWLR 538 Meyer Heine Pty Ltd v China Navigation Co Ltd (1966) 115 CLR 10; [1966] HCA 11 Mobil Oil Australia Pty Ltd v Victoria (2002) 211 CLR 1; [2002] HCA 27 Mortensen v Peters (1906) 14 SLT 227 Myer Emporium Ltd v Commissioner of Stamp Duties (1967) 68 SR (NSW) 220 Mynott v Barnard (1939) 62 CLR 68; [1939] HCA 13 O'Connor v Healey (1967) 69 SR (NSW) 111 Old UGC Inc v Industrial Relations Commission of New South Wales (2006) 225 CLR 274; [2006] HCA 24 Olefines Pty Ltd v Valuer-General of New South Wales [2018] NSWCA 265; 234 LGERA 444 Pearce v Florenca (1976) 135 CLR 507; [1976] HCA 26 Port MacDonnell Professional Fishermen's Assn Inc v South Australia (1989) 168 CLR 340; [1989] HCA 49 R v Criminal Injuries Compensation Appeal Panel; ex parte August [2001] QB 774; [2000] EWCA Civ 331 R v Foster; ex parte Eastern and Australian Steamship Co Ltd (1959) 103 CLR 256; [1959] HCA 10 R v Porter (2004) 61 NSWLR 384; [2004] NSWCCA 353 R v Sharkey (1949) 79 CLR 121; [1949] HCA 46 Re Applications of Foster [1982] 2 NSWLR 481 Re Maritime Union of Australia; Ex parte CSL Pacific Shipping Inc (2003) 214 CLR 397; [2003] HCA 43 Robinson v Local Board for the District of Barton-Eccles, Winton and Morton (1883) 8 App Cas 798 Schmidt v Government Insurance Office (NSW) [1973] 1 NSWLR 59 Seaegg v The King (1932) 48 CLR 251; [1932] HCA 37 Solomons v District Court (NSW) (2002) 211 CLR 119; [2002] HCA 47 Stamford Property Services Pty Ltd v Mulpha Australia Ltd (2019) 99 NSWLR 730; [2019] NSWCA 141 Sweedman v Transport Accident Commission (2006) 226 CLR 362; [2006] HCA 8 The Appollon 22 US 362 (1824) Thompson v The Queen (1989) 169 CLR 1; [1989] HCA 30 Union Steamship Co of Australia Pty Ltd v King (1988) 166 CLR 1; [1988] HCA 55 University of Birmingham and Epsom College v Commissioner of Taxation (Cth) (1938) 60 CLR 572; [1938] HCA 57 Vicars v Commissioner of Stamp Duties (NSW) (1945) 71 CLR 309; [1945] HCA 24 Voicu v The Owners-Strata Plan No 1624 [2020] NSWCA 52 Walker v New South Wales (1994) 182 CLR 45; [1994] HCA 64 Waller v Freehills (2009) 177 FCR 507; [2009] FCAFC 89 Wanganui-Rangitikei Electric Power Board v Australian Mutual Provident Society (1934) 50 CLR 581; [1934] HCA 3 Ward v The Queen (1980) 142 CLR 308; [1980] HCA 11 Welker v Hewett (1969) 120 CLR 503; [1969] HCA 53 Westport Insurance Corporation v Gordian Runoff Ltd (2011) 244 CLR 239; [2011] HCA 37 Worldplay Services Pty Ltd v Australian Competition and Consumer Commission (2005) 143 FCR 345; [2005] FCAFC 70 XYZ v Commonwealth (2006) 227 CLR 532; [2006] HCA 25 Texts Cited: ALRC Rep 114 Family Violence – A National Legal Response (October 2010) P Atiyah, Accidents, Compensation and the Law (1970) H L Buxbaum, "Determining the Territorial Scope of State Law in Interstate and International Conflicts: Comments on the Draft Restatement (Third) and on the Role of Party Autonomy" (2017) 27 Duke J Comp & Int'l L 381 E Campbell, "Colonial Legislation and the Laws of England" (1964-7) 2 U Tas L Rev 148 W Coote, History of the Colony of Queensland from 1770 to the Close of the Year 1881 (William Thorne, 1882) P Duff, "Criminal Injuries Compensation – The Symbolic Dimension" (1995) The Juridical Review 102 S Dutson, "The Conflict of Laws and Statutes: The International Operation of Legislation Dealing with Matters of Civil Law in the United Kingdom and Australia" (1997) 60 MLR 668 S Dutson, "The Territorial Operation of Statutes" (1996) 22 Mon LR 69 J T Gleeson, "Extraterritorial Application of Statutes Proscribing Misleading Conduct" (2005) 79 ALJ 296 Halsbury's Laws of England (5th ed 2014), Vol 20 S Hartford Davis, "The Legal Personality of the Commonwealth of Australia" (2019) 47 Fed L Rev 3 D G Hill, "Constitutional Power and Extraterritorial Enforcement" (1996) 19 UNSWLJ 45 D Ireland-Piper, "Extraterritorial Criminal Jurisdiction: Does the Long Arm of the Law Undermine the Rule of Law?" (2012) 12 Melb J Int'l L 1 W Ivor Jennings, The Law and the Constitution (5th ed, University of London Press, 1959) P Herzfeld and T Prince, Interpretation (2nd ed, 2020, Thomson Reuters) D Miers, State Compensation for Criminal Injuries (1997, Blackstone Press) W Moore, The Constitution of the Commonwealth of Australia (2nd ed, 1910) Pricewaterhouse Coopers, Review of the Victims Compensation Fund (2012) M C Pryles "The Applicability of Statutes to Multistate Transactions" (1972) 46 ALJ 629 D Swinfen, Imperial Control of Colonial Legislation 1813-1865 (Clarendon Press, Oxford, 1970) R Therry, Reminiscences of Thirty Years' Residence in New South Wales and Victoria (2nd ed, 1863, facsimile, Sydney University Press, 1974) F Trindade, "The Australian States and the Doctrine of Extra-territorial Legislative Incompetence" (1971) 45 ALJ 233 A Twomey, The Constitution of New South Wales (Federation Press, 2004) D Ward, "Legislation, Repugnancy and the Disallowance of Colonial Laws: The Legal Structure of Empire and Lloyd's case (1844)" (2010) 41 VUW L Rev 381 G Williams, S Brennan and A Lynch, Blackshield and Williams Australian Constitutional Law and Theory (7th ed, 2018) Category: Principal judgment Parties: DRJ (First applicant) DRK (Second applicant) DRL (Third applicant) DRM (Fourth applicant) DRN (Fifth applicant) Commissioner of Victims Rights (Respondent) Representation: Counsel: K Eastman SC, D Hume (Applicants) J Emmett (Respondent)