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Supreme Court of the ACT Decisions |
IN THE SUPREME COURT OF THE AUSTRALIAN CAPITAL TERRITORY CRISPIN J Personal Injuries - fall due to ice on ramp leading down to entrance of building where plaintiff worked - liability of employer - liability of occupier. Indemnity Claim - contractual obligation for employer to extend workers compensation including common law liability to cover liability of occupier - whether warrants indemnity for breach of duty as an occupier - construction of clause requiring contractor to take measures to protect people using adjoining streets or footpaths. Workers Compensation Act 1951 Cervellone v Besselink Bros Pty Ltd & Anor (1984) 55 ACTR 1 Jurjevic v Tereel Pty Ltd t/a Celtic Plastering Co & Anor (unreported, SCACT, 17 October 1986) Steele v Twin City Rigging Pty Ltd & Ors (1993) 114 FLR 99 Canberra Formwork Pty Ltd v Civil and Civic Ltd & Anor (1982) 41 ACTR 1 at 23 Alderslade v Hendon Laundry Ltd [1945] KB at 192 Canada Steamship Lines Ltd v The King [1952] AC 192 at 208 Smith & Anor v South Wales Switchgear Co Ltd (1978) 1 WLR 165 at 172 and 178 CANBERRA, 20 and 22 July 1998 (hearing), 7 August 1998 (decision) Date judgment reserved: 22 July 1998 #DATE 7:8:1998 Counsel for the Plaintiff: Mr R Williams QC with Mr B Meagher Instructing Solicitors: Scott Sheils & Glover Counsel for the First Defendant: Mr D Mossop Instructing Solicitors: Clayton Utz Counsel for the Second Defendant: Mr S Pilkinton Instructing Solicitors: Australian Government Solicitor Counsel for the Third Party: Mr J McConaghy Instructing Solicitors: Ken Cush & Associates THE COURT ORDERS THAT: 1. There be judgment for the plaintiff against both defendants in the sum of $98,195.00. 2. The first defendant indemnify the second defendant in respect of any monies paid by that defendant in satisfaction of the judgment in excess of the sum of $73,646.25. 3. The second defendant indemnify the first defendant in respect of any monies paid by that defendant in satisfaction of the judgment in excess of the sum of $24,548.75. 4. There be judgment for the first defendant against the third party in the sum of $24,548.75. CRISPIN J 1. This is an action for damages in respect of personal injuries sustained by the plaintiff in an accident on 16 July 1993. The plaintiff was employed by the first defendant as a cleaner and was required to clean in the building known as the National Library at Barton in the Australian Capital Territory which as the name suggests was occupied by the second defendant. 2. The plaintiff normally started work at 5.00 am. It was her practice to park her car in the rear car park and walk down the left hand side of a ramp to an entrance at a lower level which was manned by a security guard. On the morning in question she arrived at the car park 10 or 15 minutes prior to her normal commencement time of 5.00 am. It was quite dark and, whilst the lights in the car park were on and some light could be seen emanating from the security office, it was very hard to see the ramp. She was walking quite quickly because a new cleaner had been due to start work that day and as 'leading hand' it had been her responsibility to show her around the premises. She gave evidence that when she was about one third of the way down the ramp she slipped and fell. In cross-examination it was suggested that she had subsequently given a history of having been injured when she stepped down off a large dark step. The plaintiff said that she could not recall giving such a history and it would have been at odds with other accounts which she had given of the accident. Indeed, the contemporaneous records maintained by the security service includes an account which she apparently gave to the security officer at 5.00 am of having "slipped as she was coming down the driveway near the first bump". In any event, having had the opportunity to assess the plaintiff's credibility in the witness box I am satisfied that her account was both truthful and accurate. 3. After the accident the plaintiff noted what appeared to be black ice on the pavement. A report from the Bureau of Meteorology reveals that the ambient temperature would have been -2[infinity]C. I am satisfied that the plaintiff did slip on ice which had formed as a result of the cold atmospheric conditions. 4. A number of photographs of the relevant area were tendered. They revealed a relatively steep asphalt ramp with a concrete footpath on one side. I am satisfied that the gradient of the ramp was such that it would have been hazardous for pedestrians to attempt to walk down it whilst frost or ice was present. That hazard was compounded by the absence of adequate lighting or any railings. 5. Mr Williams QC who appeared on behalf of the plaintiff relied upon a report by Mr Alex Tiplady, a consulting engineer, to the effect that there were a number of measures which might have been taken to alleviate the risk of injury caused by the state of the ramp. Those precautions were as follows: (a) a mixture of salt and sand could have been laid on the area designated for pedestrian traffic in order to prevent or inhibit the formation of ice; (b) a handrail could have been erected against the left hand side of the ramp to assist people seeking to negotiate it in slippery conditions; (c) a bus shelter type of awning could have been erected over the pavement on the other side of the ramp in order to prevent the formation of "black" ice; (d) a notice could have been displayed warning pedestrians of the possible hazard posed by slippery conditions. 6. In my view there were other obvious precautions which might have been taken. First, and most obviously, adequate lighting could have been provided for the ramp area. Secondly, whilst this aspect was not explored in evidence there was no apparent reason for requiring cleaning staff to continue to use the ramp in the early hours of winter mornings when access could have been provided through the front of the building. 7. It was submitted on behalf of the first defendant that the evidence did not establish any negligence on its part. It had no right to alter the gradient of the ramp, erect handrails, shelters or notices, apply substances to prevent the formation of ice or install adequate lighting. Furthermore, whilst Mr Matruglio, a principal of the first defendant, may have told the plaintiff to use the rear entrance he had done as a result of having been so directed by a security officer apparently acting on behalf of the second defendant. 8. All that may be true but the first defendant had a non-delegable duty to take any steps reasonably required to protect employees such as the plaintiff from foreseeable risks of harm. It was obviously dangerous for the plaintiff to have to gain access to the building by means of an unlit ramp which was likely to become slippery due to the presence of frost or ice which might reasonably have been anticipated at that hour of a Canberra winter in July. Yet Mr Matruglio had directed her to use the rear car park and enter the building via the rear entrance. He had walked down the ramp with her and, in effect, directed her to use the ramp. The first defendant had not warned her of the danger nor, apparently made any approach to the second defendant with a view to alleviating it. Whilst the plaintiff may have been aware of the risk of frost or ice forming in Canberra during winter, that cannot absolve the first defendant from any responsibility for its failure to assess the particular risk created by a combination of the gradient of the ramp, the likely presence of ice and the absence of adequate light and warn her of the particular hazard that might be so created. 9. It was also submitted that the first defendant owed the plaintiff no duty of care in relation to her use of the ramp because she had not yet signed on and commenced work. Whilst an employer may not have any common law duty to protect his or her employees from the normal hazards of travelling to and from work that submission cannot be accepted in the circumstances of this case. It was common ground that the ramp is part of the property occupied by the second defendant and facilitates access to the rear entrance to the building in which the plaintiff was to work. She was using the ramp because she had been directed to enter the building through that entrance and was required to sign on at a security desk immediately inside. An employer's duty to his or her employees extends to the provision of a safe means of access to and egress from the place of work. Whatever may be the ambit of that duty it clearly covers a situation in which an employee has entered the relevant property and is proceeding by the route which her employer has directed her to follow to the area in which she is required to commence work. 10. I am satisfied that the first defendant breached its duty to take reasonable care to protect the plaintiff from a foreseeable risk of injury in negotiating the ramp. 11. I am also satisfied that the second defendant was negligent in failing to take reasonable steps to protect people entering the building from injury due to the dangerous state of the ramp. 12. The nature of the duty of care owed to the plaintiff by the second defendant as occupier of the building was not the same as that owed to her by the first defendant as her employer. However, the ramp was within the control of the second defendant and only it would have been entitled to alleviate the risk of harm by modifying it in the manner suggested by Mr Tiplady or by installing adequate lighting. It was also the second defendant which had apparently determined that cleaners such as the plaintiff should use the rear entrance and had stationed a security guard inside that entrance to authorise their entry. In short the second defendant was primarily responsible not only for the dangerous state of the ramp but for the fact that the plaintiff had been directed to use it. In contrast, the first defendant was negligent only in failing to warn her of the danger and, perhaps, failing to remonstrate with the second defendant about the need to provide a safer means of access. 13. Subject to the contractual claims brought by the second defendant against the first defendant, I am satisfied that the second defendant bears a significantly greater responsibility for the accident and the injuries which the plaintiff sustained as a result. 14. Contributory negligence was raised by the second defendant but Mr Pilkinton, who appeared for that party, did not cross-examine the plaintiff with a view to establishing any breach of failure to take due care for her own safety. Mr McConaghy, who appeared for the third party, cross-examined the plaintiff not only on behalf of his own client but, by arrangement with Mr Mossop who appeared for the first defendant, also on behalf of that party. Mr McConaghy suggested to the plaintiff that if she had stepped off a high step onto the ramp she would have known that such a course was dangerous. She readily acceded to that proposition but maintained that the accident had not occurred in that manner. As previously mentioned, I accept her evidence as to the circumstances in which the accident occurred. 15. It was also suggested that the plaintiff had otherwise failed to take due care for her own safety by walking down the asphalt portion of the ramp rather than the footpath. However the footpath followed the same gradient and there was no evidence that it would have been less slippery in the frosty conditions prevailing. The plaintiff did say that she had seen ice to her left but there is no evidence that she saw any at the location of the accident or even that the light would have permitted her to do so. 16. I am not satisfied that contributory negligence has been established. 17. It was accepted by the first defendant that insofar as it may be liable to the second defendant by reason of its failure to effect insurance cover as required by the contract between them, it would not be entitled to any indemnity from the third party. Conversely, it was accepted by the third party that insofar as the first defendant may be held liable to the plaintiff for breach of its common law duty as pleaded in the Statement of Claim, it was entitled to be so indemnified. 18. The second defendant sought an indemnity or contribution from the first defendant for any liability which it may have to the plaintiff by reason of the duty it owed to her as occupier of the building. In addition to the usual reliance upon the statutory provisions governing joint tortfeasors, that claim was put on two bases. First, it was contended that the first defendant breached its contractual obligation to effect policies of insurance which protected the second defendant from any liability to the public or to employees of the first defendant including, of course, the plaintiff. Secondly, it was contended that the first defendant breached its contractual obligation to take effective measures for the protection and safety of persons using the street, road lane or footpath adjoining or adjacent to the premises. 19. The contract contained two clauses imposing obligations upon the first defendant to effect policies of insurance providing cover for the second defendant. These clauses were in the following terms: 3.4.1 "Prior to the commencement of Cleaning Services under this agreement the Contractor will be required to effect a Public Liability Insurance policy in the names of the Library and the Contractor to the value of $5,000,000 with an Insurer and in terms approved in writing by the Library. The policy is to be maintained during the currency of this Contract. The Library may at any time during the currency of this Contract increase the sum insured and the Contractor is obliged to comply with any such requirements." 3.4.5 "The Contractor shall ensure his liability (including common law liability) as required under any applicable Worker's Compensation Statute or Regulation thereunder against any loss, damage, action, suit or proceedings, costs and expenses whatsoever as a result of personal injury or death to any person employed by the Contractor in, or in connection with, the performance of the Cleaning Services. The insurance effected by the Contractor pursuant to this condition shall be extended to cover all liabilities of the Library at common law and under any applicable statute or other legislative provision. The insurance cover in respect of the liabilities of the Library at common law shall be for an amount not less than the sum approved by the Library and the policy shall be effected with an Insurer, or Insurers approved in writing by the Library, which approval shall not be unreasonably withheld. The policy is to be maintained during the currency of the Contract." 20. It was common ground that, whilst the first defendant had effected a public liability insurance policy in the sum of $5,000,000 and also had a workers' compensation policy, neither provided any cover for the second defendant. 21. Mr Pilkinton submitted that the provisions contained in paragraphs 3.4.1 and 3.4.5 gave rise to straightforward obligations to effect policies of insurance which would protect the second defendant from any claims which might be made by members of the public or employees of the first defendant. Since it failed to fulfill its contractual obligation to effect such insurances the first defendant was liable to the full extent for any loss which the second defendant might sustain as a result of the present action. He drew support for this proposition from the decision of Kelly J in Cervellone v Besselink Bros Pty Ltd & Anor (1984) 55 ACTR 1 and submitted that the subsequent decisions of Gallop J in Jurjevic v Tereel Pty Ltd t/a Celtic Plastering Co & Anor (unreported, ACT Supreme Court, 17 October 1986) and Higgins J in Steele v Twin City Rigging Pty Ltd & Ors (1993) 114 FLR 99 should be distinguished on the basis that the contract between the defendants in the present case contain no words of limitation. 22. In my view it is appropriate to construe paragraph 3.4.5 as requiring the first defendant to obtain insurance cover in respect of any workers compensation or common law liability which it might have in relation to its employees and to extend such cover to the second defendant, and to construe paragraph 3.4.1 as requiring the first defendant to insure the second defendant against claims by members of the public other than those employees. A similar approach was taken by Blackburn CJ in Canberra Formwork Pty Ltd v Civil and Civic Ltd & Anor (1982) 41 ACTR 1 at 23. 23. In addition to these paragraphs relating to insurance paragraph 3.4.4 contained certain covenants of indemnity. That paragraph is in the following terms: "(a) In accordance with 3.4.1 the Contractor shall indemnify and keep indemnified the Library, its officers, servants and agents from and against all claims, demands, actions, suits or proceedings whatsoever that may be made by any person in respect of loss, injury or damage, whether to any person, or property, cause, or alleged to have been caused, by the Contractor, any sub-Contractor of the Contractor or their respective servants, employees or agents or for any other person for whose negligence or wrongdoing the Contractor is vicariously liable. This indemnity is to also cover any negligence or other wrongful act or wrongful omission of the visitors, invitees or licensees of the Contractor or any sub-Contractor (sic). (b) The Contractor shall, as between the parties Contract be liable for loss or damage (including injury whether or not resulting in death) suffered by the Library, its officers, servants or agents as per 3.4.4 (a) to the extent that the loss or damage does not result from the fault or negligence of the Library, its officers, servants or agents." 24. It may be noted that the clause exempting liability for damage resulting from the fault of the second defendant Library or its servants or agents is expressed to qualify only paragraph (b) of the clause which deals with loss or damage sustained by the second defendant or its servants or agents. However, paragraph (a) provides a right of indemnity only in respect of loss, injury or damage caused by the contractor, in this case the first defendant or by other people having a relationship to the first defendant of the kind therein specified. Accordingly, it seems clear that despite the apparently unlimited terms of clause 3.4.1 any right of indemnity which might be implied from those terms should be limited in this manner. In particular, clause 3.4.1 should not be taken to require the first defendant to indemnify the second defendant in respect of any liability to the public caused by its own negligence or that of its servants or agents. For these reasons paragraph 3.4.1 does not support the second defendant's claim. 25. Paragraph 3.4.4 adverts specifically to paragraph 3.4.1 but not to paragraph 3.4.5. Nonetheless the last mentioned paragraph falls to be determined in the context of the contract as a whole including paragraphs 3.4.1 and 3.4.4. 26. The principles governing the interpretation of clauses said to exempt one party to a contract from liability for its own negligence were stated by Lord Greene MR in Alderslade v Hendon Laundry Ltd [1945] KB 189 at 192 and were referred to with approval by Lord Morton of Henryton in Canada Steamship Lines Ltd v The King [1952] AC 192 at 208 where he summarised them in the following terms: (1) "If the clause contains language which expressly exempts the person in whose favour it is made (hereafter called "the proferens") from the consequence of the negligence of his own servants, effect must be given to that provision . . . (2) If there is no express reference to negligence, the court must consider whether the words used are wide enough, in their ordinary meaning, to cover negligence on the part of the servants of the proferens. If a doubt arises at this point, it must be resolved against the proferens . . .(3) If the words used are wide enough for the above purpose, the court must then consider whether "the head of damage may be based on some ground other than that of negligence", to quote again Lord Greene in the Alderslade case, the "other ground" must not be so fanciful or remote that the proferens cannot be supposed to have desired protection against it; but subject to this qualification, which is no doubt to be implied from Lord Greene's words, the existence of a possible head of damage other than that of negligence is fatal to the proferens even if the words used are prima facie wide enough to cover negligence on the part of his servants." 27. This passage was quoted by Lord Fraser of Tullybelton and Lord Keith of Kinkell in Smith & Anor v South Wales Switchgear Co Ltd (1978) 1 WLR 165 at 172 and 178 respectively. Lord Wilberforce, Viscount Dilhorne and Lord Salmon expressed agreement with the speeches of their Lordships. As Lord Fraser of Tullybelton observed, at 172, the principles are equally applicable to the interpretation of clauses of indemnity which in many cases are merely the obverse of clauses of exemption. Furthermore, whilst neither the Court of Appeal nor the Privy Council addressed this issue, the same principles would seem to be applicable to any determination of whether a clause which may provide limited protection against the negligence of a proferens' servants should be construed to provide a broader basis of protection covering negligence in other circumstances. 28. Insofar as the first of these principles is concerned his Lordship also said that he could not see how a clause could "expressly" exempt or indemnify the proferens against his own negligence unless it contained the word "negligence". In the present case clause 3.4.5 does not use the word "negligence" and I do not accept that the phrase "all liabilities of the Library at common law" should be construed as a necessarily embracing term in this context. 29. On the other hand, when one turns to the second principle referred to by Lord Morton, it does seem to me that these words are wide enough, in their ordinary meaning, to cover negligence on the part of the servants of the proferens. 30. Accordingly, the issue falls to be determined in accordance with the third principle which requires consideration of whether the head of damage for which protection is to be provided might be based upon some other ground. In my view it is significant that the clause does not require the contractor to take out a fresh insurance policy in favour of the second defendant but to extend the insurance effected by the contractor pursuant to its obligation under the same clause. That obligation is an obligation to ensure "his liability (including common law liability) as required under any applicable worker's compensation statute or regulation thereunder against any claims for loss, damage, action, suit or proceeding, costs or expenses whatsoever as a result of personal injury or death" to any of the contractor's employees. The requirement that the insurance effected by the contractor be extended to cover liabilities of the second defendant suggests that what was contemplated by the parties was that the second defendant would be added as a further insuree under the same policy and receive insurance cover of the same character. An insurance policy of the kind required under workers' compensation legislation, (albeit including common law liability) is quite different from the type of policy normally obtained to cover liability by occupiers of buildings to members of the public or other entrants. 31. It is true that any liability under worker's compensation legislation would fall upon the employer, in this case the first defendant, and that liability of that kind would not normally extend to a person in the position of the second defendant. However, in my view a body such as the second defendant might reasonably wish to be indemnified in relation to any risk that it may ultimately incur liability of that kind. Such a risk might arise because, for example, it has presumed to direct the employee to carry out the work in a particular manner and that exposed the employee to a foreseeable risk of injury. In an extreme case the services of the employee might be regarded as having been "temporarily lent or let on hire" to the second defendant and the second defendant might be construed as an employer within the meaning of section 6(1) of the Workers Compensation Act 1951. There might also be some concern that a statutory provision or further legislation which might be enacted during the currency of the contract might make a body in the position of the second defendant responsible for any liabilities which the contractor may have owed to its employees but was unable to meet due to insolvency. In my view, these risks cannot be dismissed as so fanciful or remote that the proferens could not be supposed to have desired protection against them. 32. The existence of another ground of potential liability to which the relevant obligation may relate might of itself be fatal to the proferens. However in the present case that ground of liability is the one naturally suggested by the language of paragraph 3.4.5 and the contention that it required the first defendant to insure the second defendant against his own breach of duty as occupier of a particular building would require a somewhat strained construction of that language. Furthermore, it is difficult to see what utility there would have been in requiring a cleaning contractor to take out insurance in the name of the second defendant which would have protected it from liability as an occupier only in relation to any claims made by cleaning staff and not by any other member of the public. 33. The contractual obligation of the first defendant to take measures to protect people using adjoining streets, roads, lanes or footpaths must again be construed in accordance with the contract as a whole. It must also be construed in the light of the circumstances that might reasonably be supposed to have been in the contemplation of the parties. In my view it could not have been contemplated that the first defendant would have carried out structural modifications to thoroughfares over which it had no lawful control or to regulate the activities of third parties over whom it had no lawful control. The clause should be construed as requiring the first defendant to take effective measures to protect people using adjoining thoroughfares from any hazards posed by the cleaning or other activities undertaken by the first defendant. Even if this obligation extended to the protection of the first defendant's own employees the evidence does not establish that it had been breached. I do not accept that the first defendant's failure to warn the plaintiff or remonstrate with the second defendant over the state of its own property should be so regarded. In any event, even if the first defendant's failure could be seen as a breach of contract that would not warrant a greater apportionment of liability than that which would be justified by the same failure in tort. 34. Having regard to the extend of their responsibility for the plaintiff's injuries I think it is appropriate that the first defendant bear 25% and the second defendant bear 75% of the sum recoverable by the plaintiff. 35. I accept the plaintiff's evidence as to the pain and disabilities which she suffered following the accident. I also accept her evidence as to the onset of lower back pain. Mr McConaghy strenuously argued that I should reject her evidence on this point because there was no contemporaneous record of complaint concerning these symptoms until September 1993 and that it was unlikely that she would remember precisely when these symptoms commenced given the time that had elapsed since. Whilst I appreciate the force of this argument I formed the impression that the plaintiff was a stoical person who had gone back to work notwithstanding the pain caused by her various injuries because her husband was disabled and she was the sole breadwinner. Having regard for the need to return to work, and the fact that she was then required to do manual work for 12 hours per day there is nothing inherently implausible about her evidence to the effect that she was conscious of the pain in her back notwithstanding the other symptoms from which she was then suffering. It also seems likely that upon her return to work her duties as a cleaner would have required her to bend or otherwise move in a manner likely to give rise to pain from the back injury. 36. On the other hand, it seems clear that she now has a significant injury to her shoulder and that this is unrelated to the accident. That injury seems to have become progressively more painful. Furthermore, her husband died in August 1996. The plaintiff explained that she had been "pushing herself" to support her husband and could not see why she should hurt herself by continuing to work thereafter. Whilst I accept that her evidence to the effect that she intended to work well into her sixties was genuinely given, I do entertain some doubt as to whether that resolve would have been maintained once the need for her to maintain her husband had passed and she had begun to develop significant pain in her shoulder. Furthermore, the plaintiff had ceased working at the Stromlo High School in September 1994 and had thereafter worked only 8 hours per day. Whilst I accept that this decision was influenced by the pain she was then experiencing I am obliged to take into account the possibility that she would in any event have reduced her hours of work as her husband's condition continued to deteriorate and he presumably required more care and attention. Furthermore, whilst the plaintiff's general health seems unremarkable and she was obviously a conscientious worker there was obviously some reasonable chance that she would ultimately become unable to sustain work of that kind at least on a full time basis. 37. In the circumstances I propose to allow a figure of $30,000.00 for past economic loss. For the purpose of calculating interest that sum needs to be reduced by $7,712.65. being the gross value of weekly payments made to her under the Workers Compensation legislation and I have assessed interest at $2,229.00 on the residual figure. The plaintiff has also lost the superannuation entitlement which she would have had in respect of those loss earnings and I allow the sum of $2,100.00 together with interest on this amount in the sum of $210.00. 38. The evidence suggests that the pain in her shoulder presently makes it difficult for her to carry out housework at her daughter's house and I think it is most unlikely that she would be able to sustain full time work as a cleaner in the future. Nonetheless, she would have had some residual earning capacity and I propose to allow a further sum of $20,000.00 as a buffer for the future. 39. Out of pocket expenses are agreed in the sum of $8,184.81 and the Fox v Wood component is agreed at $3,071.17. 40. There is no evidence as to the likely quantum of any future medical or pharmaceutical expenses but it does seem likely that she will continue to experience pain as a result of the injuries which she received as a result of the accident though, as Mr McConaghy was quick to point out, perhaps also as a result of the unrelated shoulder condition. I allow the plaintiff the sum of $1,000.00. 41. I assess general damages in the sum of $30,000.00 and add a further sum of $1,500.00 for interest on the component referable to the period prior to trial which was $15,000.00. 42. That amounts to $98,194.98 and I round this sum off to $98,195.00. 43. Whilst the plaintiff is entitled to succeed against both defendants in respect of this sum, as between the defendants, the first defendant should contribute an amount of $24,548.75 and the second defendant an amount of $73,646.25.
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