Queensland Bulk Water Supply Authority t/as Seqwater v Rodriguez & Sons Pty Ltd [2021] NSWCA 206

Court of Appeal Supreme Court New South Wales Medium Neutral Citation: Queensland Bulk Water Supply Authority t/as Seqwater v Rodriguez & Sons Pty Ltd [2021] NSWCA 206 Hearing dates: 17-21 and 24-28 May 2021 Date of orders: 8 September 2021 Decision date: 08 September 2021 Before: Basten JA; Meagher JA; Leeming JA Decision: (A) In matter 2020/189434 (Seqwater's appeal) – (1) In relation to orders relating to group members not the subject of final orders, grant Seqwater leave to appeal. (2) Allow the appeal and – (a) set aside order (3) made on 29 May 2020 in Rodriguez (No 23) and orders (3)-(6) made on 7 May 2021 in Rodriguez (No 29); (b) set aside order (2) made on 29 May 2020 in Rodriguez (No 23) and order (1) made on 7 May 2021 in Rodriguez (No 29) in so far as the answers to the common questions relate to Seqwater or its employees; (c) set aside orders 1-4 made on 28 October 2020 in Rodriguez (No 24), in so far as they relate to costs payable by Seqwater, and remit to the primary judge any outstanding issue as to the costs of the proceeding in the Common Law Division in matter 2014/200854 involving Seqwater. (3) Subject to the remittal provided in order (2)(c), dismiss the proceedings in the Common Law Division in matter 2014/200854 as against Seqwater. (4) Order that the first respondent (Rodriguez & Sons Pty Ltd) pay the appellant's costs of the appeal. (B) In matter 2020/189716 (Rodriguez' application for leave to appeal) – Dismiss the summons seeking leave to appeal (with no order as to costs). Catchwords: APPEALS – leave to appeal – representative proceedings – interlocutory orders – orders final with respect to the representative party – no finality as to group members claims – challenge to answers to common questions TORTS – negligence – standard of care – acts or omissions of public authority – exercise of statutory function – statutory protection – application of Wednesbury standard of care – Civil Liability Act 2003 (Qld) s 36 NEGLIGENCE – standard of care – conduct of flood operations – compliance with Flood Operations Manual – construction of Manual written by flood engineers for application by flood engineers – purposive construction – dual purposes of water supply and flood mitigation – concept of flood mitigation – releases not to exceed peak inflows – use of best available rainfall forecasts – degrees of tolerance – scope for professional judgment – role of the senior flood operations engineer in determining strategies NEGLIGENCE – causation – factual causation – cumulative effect of sequential breaches – series of acts jointly sufficient to cause harm – division of single course of conduct into discrete breaches artificial TORTS – damage to property – whether liability apportionable – concurrent wrongdoers – whether acting independently of each other – Civil Liability Act 2003 (Qld) s 30 TORTS – damages – prejudgment interest on damages – property damage – awards with respect to cleaning undertaken by volunteers – interest on such awards – interest on subventions in form of charitable relief COSTS – apportionment of costs – wrongful conduct governed by Queensland law – proceedings brought in New South Wales – Civil Procedure Act 2005 (NSW), s 98 applied Legislation Cited: Acts Interpretation Act 1954 (Qld), ss 2, 6, 35C Brisbane and Area Water Board Act 1979 (Qld), ss 9, 106, 107, 108 Civil Law (Wrongs) Act 2002 (ACT), s 111 Civil Liability Act 2002 (NSW), ss 5D, 43, 43A; Pt 4 Civil Liability Act 2002 (Tas), s 40 Civil Liability Act 2002 (WA), ss 5Y, 5X Civil Liability Act 2003 (Qld), ss 9, 11, 16, 22, 28, 30, 31, 32A, 32B, 32C, 34, 35, 36, 37, 38; Ch 2, Pt 2, Pt 3, Div 1 Civil Procedure Act 2005 (NSW), ss 56, 58, 98, 100, 162, 180; Pt 10 Civil Proceedings Act 2011 (Qld), s 58 Constitution, ss 51(xx), 73 Federal Court of Australia Act 1976 (Cth), s 33ZC; Pt IVA Fire Brigades Act 1909-1956 (NSW), s 46 Human Rights Act 1998 (UK), s 6 Jurisdiction of Courts (Cross-Vesting) Act 1987 (NSW), s 9 Jurisdiction of Courts (Cross-Vesting) Act 1987 (Qld), ss 3, 4, 11 Law Reform (Miscellaneous Provisions) Act 1946 (NSW), s 5 Law Reform (Vicarious Liability) Act 1983 (NSW), s 10 Law Reform Act 1995 (Qld), ss 6, 7 South East Queensland Water (Restructuring) Act 2007 (Qld), ss 3, 6, 7, 9, 11, 14, 15, 17, 18, 19, 34, 44, 45, 47, 48, 49, 50, 51, 54, 56, 57, 61, 63, 64, 67, 72, 73, 81; Ch 2, Pt 1, Pt 4, Divs 1, 2, 3, 4, Pt 6; Sch 3 (Dictionary) South East Queensland Water Board Act 1979 (Qld), s 106 Statutory Instruments Act 1992 (Qld), s 7 Supreme Court Act 1933 (ACT), s 69 Supreme Court Act 1970 (NSW), ss 101, 103 Supreme Court Act 1986 (Vic), Pt 4A Water Act 2000 (Qld), ss 19, 38, 50, 95, 98,103, 107, 107A, 108, 109, 110, 119, 497, 808, 813, 1071; Sch 4 Dictionary Water Resources Act 1989 (Qld), ss 215F, 215Y Water Supply (Safety and Reliability) Act 2008 (Qld), ss 13, 21, 22, 370, 371, 374, 589, 613; Ch 4, Pt 2 Wivenhoe Dam and Hydro-Electric Works Act 1979 (Qld), ss 32, 33, 34, 35 Workers' Compensation Act 1926 (NSW), s 16 Wrongs Act 1958 (Vic), s 84 Uniform Civil Procedure Rules 2005 (NSW), r 51.40; Pt 58 Cases Cited: Associated Provincial Picture Houses Ltd v Wednesbury Corporation [1948] 1 KB 223 Aston Cantlow and Wilmcote with Billesley Parochial Church Council v Wallbank [2004] 1 AC 546 Attorney-General for the State of New South Wales v Quin (1990) 170 CLR 1; [1990] HCA 21 Avon Downs Pty Ltd v Federal Commissioner of Taxation (1949) 78 CLR 353; [1949] HCA 26 Bailey v Federal Commissioner of Taxation (1977) 136 CLR 214; [1977] HCA 11 Bankstown City Council v Zraika; Roads and Maritime Services v Zraika (2016) 94 NSWLR 159; [2016] NSWCA 51 Batchelor v Burke (1981) 148 CLR 448; [1981] HCA 30 Blundell v Musgrave (1956) 96 CLR 73; [1956] HCA 66 Board of Fire Commissioners (NSW) v Ardouin (1961) 109 CLR 105; [1961] HCA 71 Boensch v Pascoe (2019) 268 CLR 593; [2019] HCA 49 Bunnings Group Ltd v CHEP Australia Ltd (2011) 82 NSWLR 420; [2011] NSWCA 342 Chapman v Hearse (1961) 106 CLR 112; [1961] HCA 46 Chase Oyster Bar Pty Ltd v Hamo Industries Pty Ltd (2010) 78 NSWLR 393; [2010] NSWCA 190 CHEP Australia Ltd v Bunnings Group Ltd [2010] NSWSC 301 Communications, Electrical, Electronic, Energy, Information, Postal, Plumbing and Allied Services Union of Australia v Queensland Rail (2015) 256 CLR 171; [2015] HCA 11 Coulton v Holcombe (1986) 162 CLR 1; [1986] HCA 33 Crimmins v Stevedoring Industry Finance Committee (1999) 200 CLR 1; [1999] HCA 59 CSR Ltd v Eddy (2005) 226 CLR 1; [2005] HCA 64 Curtis v Harden Shire Council (2014) 88 NSWLR 10; [2014] NSWCA 314 Darling Island Stevedoring and Lighterage Co v Long (1957) 97 CLR 36; [1957] HCA 26 Davidson v J S Gilbert Fabrications Pty Ltd [1986] 1 Qd R 1 Ferguson v Wilson (1866) LR 2 Ch App 77 Fire & All Risks Insurance Co Ltd v Callinan (1978) 140 CLR 427; [1978] HCA 31 George v Federal Commissioner of Taxation (1952) 86 CLR 183; [1952] HCA 21 Giles v Thompson [1994] 1 AC 142 Gill v Donald Humberstone & Co Ltd [1963] 1 WLR 929 Griffiths v Kerkemeyer (1977) 139 CLR 161; [1977] HCA 45 Grincelis v House (2000) 201 CLR 321; [2000] HCA 42 Hamcor Pty Ltd v Queensland [2014] QSC 224 Hamcor Pty Ltd v State of Queensland [2016] 1 Qd R 271; [2015] QCA 183 Hollis v Vabu Pty Ltd (2001) 207 CLR 21; [2001] HCA 44 Housman v Camuglia [2021] NSWCA 106 James Hardie & Coy Pty Ltd v Wyong Shire Council (2000) 48 NSWLR 679; [2000] NSWCA 107 John Pfeiffer Pty Ltd v Rogerson (2000) 203 CLR 503; [2000] HCA 36 Kars v Kars (1996) 187 CLR 354; [1996] HCA 37 Kuru v New South Wales (2008) 236 CLR 1; [2008] HCA 26 Labuda v Langford [2001] ACTSC 126; 36 MVR 154 Leichhardt Municipal Council v Montgomery (2007) 230 CLR 22; [2007] HCA 6 MBP (SA) Pty Ltd v Gogic (1991) 171 CLR 657; [1991] HCA 3 National Insurance Co of New Zealand Ltd v Espagne (1961) 105 CLR 569; [1961] HCA 15 NEAT Domestic Trading Pty Ltd v AWB Ltd (2003) 216 CLR 277; [2003] HCA 35 O'Brien v Dawson (1942) 66 CLR 18 Oceanic Crest Shipping Company v Pilbara Harbour Services Pty Ltd (1986) 160 CLR 626 O'Toole v Charles David Pty Ltd (1990-1991) 171 CLR 232; [1990] HCA 44 Pioneer Mortgage Services Pty Ltd v Columbus Capital Pty Ltd (2016) 250 FCR 136; [2016] FCAFC 78 Plaintiff S157/2002 v Commonwealth of Australia (2003) 211 CLR 476; [2003] HCA 2 Plymouth Brethren (Exclusive Brethren) Christian Church v The Age Company Ltd (2018) 97 NSWLR 739; [2018] NSWCA 95 Powercor Australia Ltd v Thomas (2012) 43 VR 220; [2012] VSCA 87 Prince Alfred College Inc v ADC (2016) 258 CLR 134; [2016] HCA 37 Project Blue Sky Inc v Australian Broadcasting Authority (1998) 194 CLR 355; [1998] HCA 28 Puntoriero v Water Administration Ministerial Corporation (1999) 199 CLR 575; [1999] HCA 45 Queensland v Masson [2020] HCA 28; 94 ALJR 785 R v Panel on Take-overs and Mergers; Ex parte Datafin Plc [1987] 1 QB 815 Re Anti-Cancer Council (Vic); Ex parte State Public Services Federation (1992) 175 CLR 442; [1992] HCA 53 Redding v Lee (1983) 151 CLR 117; [1983] HCA 16 Renmark Hotel Inc v Federal Commissioner of Taxation (1949) 79 CLR 10; [1949] HCA 7 Roads and Maritime Services v Grant [2015] NSWCA 138 Screenco Pty Ltd v R L Dew Pty Ltd (2003) 58 NSWLR 720; [2003] NSWCA 319 Sempra Metals Ltd v Inland Revenue Commissioners [2008] 1 AC 561 Soblusky v Egan (1960) 103 CLR 215; [1960] HCA 9 South West Helicopters Pty Ltd v Stephenson (No 2) (2018) 98 NSWLR 96; [2018] NSWCA 99 Southern Properties (WA) Pty Ltd v Executive Director of the Department of Conservation and Land Management (2012) 42 WAR 287; [2012] WASCA 79 Stovin v Wise [1996] AC 923 Strong v Woolworths Ltd (2012) 246 CLR 182; [2012] HCA 5 Sutherland Shire Council v Heyman (1985) 157 CLR 424; [1985] HCA 41 Suttor v Gundowda Pty Ltd (1950) 81 CLR 418; [1950] HCA 35 Thompson v Australian Capital Television Pty Ltd (1996) 186 CLR 574; [1996] HCA 38 Van Gervan v Fenton (1992) 175 CLR 327; [1992] HCA 54 Voli v Inglewood Shire Council (1963) 110 CLR 74; [1963] HCA 15 Zhang v ROC Services (NSW) Pty Ltd (2016) 93 NSWLR 561; [2016] NSWCA 370 Zheng v Cai (2009) 239 CLR 446; [2009] HCA 52 Texts Cited: J Carter, The Construction of Commercial Contracts (Hart Publishing, 2013) P Craig, Administrative Law (8th ed, 2016, Sweet & Maxwell) R Creyke and J McMillan, "Soft Law versus Hard Law" in Pearson, Harlow and Taggart (eds) Administrative Law in a Changing State: Essays in Honour of Mark Aronson (Hart Publishing, 2008) R Douglas, G Mullins and S Grant, Annotated Civil Liability Legislation – Queensland, (3rd ed, Lexis Nexus Butterworths 2012) J Edelman (ed), McGregor on Damages (21st ed, 2021, Thomson Reuters) R Garnett, Substance and Procedure in Private International Law (Oxford University Press, 2012) H Luntz and S Harder, Assessment of Damages for Personal injury and Death (5th ed, LexisNexis, 2021) G Weeks, Soft Law and Public Authorities (Hart Publishing, 2016) Qld Govt Gazette, vol 353, no 15 published 22 January 2010 Category: Principal judgment Parties: 2020/189434: Queensland Bulk Water Supply Authority t/as Seqwater (Appellant) Rodriguez & Sons Pty Ltd (First Respondent) SunWater Ltd (Second Respondent) State of Queensland (Third Respondent)