Consideration
29 At first glance, s 4(2) of the Jurisdiction of Courts (Cross-vesting) Act 1987 (Cth) appears to supply the gateway to the present issue. It provides that where the Supreme Court of a Territory has jurisdiction with respect to a civil matter then jurisdiction is conferred on the Federal Court, if it would not apart from the section have jurisdiction with respect to that matter. But s 3(1) of that Act provides that "Territory" does not include the Australian Capital Territory and "State" does include the Australian Capital Territory.
30 It is therefore necessary to go to s 9(3) of that Act which I have set out above.
31 It will be recalled that in Re Wakim (above), s 9(2) of the Jurisdiction of Courts (Cross-vesting) Act 1987 (Cth) was held invalid as an attempt to confer jurisdiction on the Federal Court that was not found in s 75 or s 76 of the Constitution.
32 Earlier, in GPAO (above) a majority of the High Court had held that s 76(ii) of the Constitution, in conjunction with s 77(i) of the Constitution, permitted the conferral of jurisdiction on federal courts in matters arising under laws made under s 122 of the Constitution: see GPAO (above) at [91], [132] and [254]. The federal court in that case was the Family Court of Australia and the law made under s 122 of the Constitution was s 69ZG of the Family Law Act 1975 (Cth), providing that Pt VII of that Act applied in and in relation to the Northern Territory so that a parenting order could be made by the Family Court in respect of a child that was not the child of a marriage.
33 Section 122 provides:
122 The Parliament may make laws for the government of any territory surrendered by any State to and accepted by the Commonwealth, or of any territory placed by the Queen under the authority of and accepted by the Commonwealth, or otherwise acquired by the Commonwealth, and may allow the representation of such territory in either House of the Parliament to the extent and on the terms which it thinks fit.
34 In Spinks v Prentice (above), decided at the same time as Re Wakim (above), orders for examination were made by the Federal Court under the Corporations Law (ACT). The High Court held that s 51(1) of the Corporations Act 1989 (Cth) validly conferred jurisdiction on the Federal Court under the Corporations Law (ACT). By s 51(1), jurisdiction was conferred on the Federal Court "with respect to civil matters arising under the Corporations Law of the Capital Territory". The High Court gave the answers "yes" to the questions whether s 51(1) was a law defining the jurisdiction of a federal court other than the High Court within s 77(i) and with respect to a matter arising under a law made by the Parliament within s 76(ii): see especially (1999) 198 CLR 511 at [172] and [175] and also at [25] per Gleeson CJ, [27] and [30] per Gaudron J and [82] per McHugh J. The High Court followed the then recent decision in GPAO (above), on the assumption that s 122 of the Constitution was the sole source of power to make the Corporations Law (ACT).
35 On this analysis s 9(3) of the Jurisdiction of Courts (Cross-vesting) Act 1987 (Cth) itself, together, if necessary, with s 19 of the Federal Court of Australia Act 1976 (Cth) which provides that the Court has such original jurisdiction as is vested in it by laws made by the Parliament, conferred jurisdiction on the Federal Court: Re Wakim (above) at [105], [107], [108] and [114]. That provision is a law made by the Parliament within s 76(ii) of the Constitution. It picks up, as Commonwealth law, the jurisdiction of the Australian Capital Territory Supreme Court to hear and determine the present dispute: Ruhani (above) at 527.
36 In Ruhani (above) the High Court considered s 5(3) of the Nauru (High Court Appeals) Act 1976 (Cth). The section provided that where the Agreement (between the Government of Australia and the Government of the Republic of Nauru, signed on 6 September 1976) provided that an appeal was to lie to the High Court of Australia from the Supreme Court of Nauru with the leave of the High Court, the High Court had jurisdiction to hear and determine an application for such leave. It was held that this provision was a law made by the Parliament in exercise of its authority under s 76(ii) of the Constitution to make laws conferring original jurisdiction on the High Court in any matter "arising under any laws made by the Parliament". The relevant matters arose under federal law because they owed their existence to the adoption and translation into Australian law of Articles 1 and 2 of the Agreement. The Nauru Act performed the double function of creating and enforcing rights.
37 Here, the content of the law is derived from the law of the Australian Capital Territory: see Ruhani (above) at 499. Although there is some infelicity in that law being defined to mean a matter "in which the Supreme Court has jurisdiction otherwise than by reason of a law of the Commonwealth or of another State", it is sufficiently clear that the reference is to matters in which the Supreme Court has jurisdiction otherwise than by reason directly of a law of the Commonwealth or of another State, that is, where the Supreme Court exercises jurisdiction by virtue of Australian Capital Territory enactments. In the case of a State, such a direct law of the Commonwealth would be s 39(2) of the Judiciary Act 1903 (Cth).
38 I reject the respondent's submission that s 9(3) of the Jurisdiction of Courts (Cross-vesting) Act 1987 (Cth) is not a law "defining" the jurisdiction of the Federal Court because it does not set out that jurisdiction with sufficient specificity. In my opinion that submission is inconsistent with Spinks v Prentice (above). The earlier general dicta in Abebe v Commonwealth (1999) 197 CLR 510 at [226] per Kirby J and Gould v Brown (1998) 193 CLR 346 at [187] per Gummow J do not qualify or contradict what was said by the Court in Spinks v Prentice (above) and in Ruhani (above).
39 As I have set out, the respondent submitted that Spinks v Prentice (above) and GPAO (above) were to be distinguished on the basis that in each of those cases there was another law made by the Parliament under s 122. In my opinion this search for a second law made under s 122 was misplaced and was not a viable basis of distinction. This is because there is no reason why a law made under s 122, here the Jurisdiction of Courts (Cross-vesting) Act 1987 (Cth), may not confer jurisdiction on this Court by reference to the law of the Australian Capital Territory rather than laws made by the Commonwealth Parliament, assuming the Supreme Court Act 1933 (ACT) and Chapter 9 of the Civil Law (Wrongs) Act 2002 (ACT) or the common law to be such territory laws. This is because s 9(3), in my opinion, both confers jurisdiction and creates rights arising under that provision. Those rights have the force of laws of the Commonwealth in respect of which a matter may arise.
40 I refer first to Barrett (above) at 155 and 169, with reference to s 58E of the Commonwealth Conciliation and Arbitration Act 1904-1934 (Cth), which was relevantly in the following terms:
58E(1) The Court may, upon complaint by any member of an organization and after giving any person against whom an order is sought an opportunity of being heard, make an order giving directions for the performance or observance of any of the rules of an organization by any person who is under an obligation to perform or observe those rules.
(2) Any person who fails to comply with such directions shall be guilty of an offence.
41 In Hooper v Hooper (above) at 535-538 the High Court applied Barrett (above) with reference to ss 10, 11 and 12 of Part III of the Matrimonial Causes Act 1945 (Cth). The High Court said at 537 that the State laws to which the force of federal law was given were those which might exist from time to time.
42 I refer also the reasoning to the same effect in O'Neill v Mann (2000) 101 FCR 160 at [37] per Finn J, with which, with respect, I agree.
43 In Ruhani (above) the High Court applied Barrett (above) at [8], [61], [80]-[81] and [111].
44 I also reject the submission that the Jurisdiction of Courts (Cross-vesting) Act 1987 (Cth) was intended only to facilitate hearing by the Federal Court of a matter transferred to it and it was not intended to create a new source of original jurisdiction. The respondent placed reliance on the preamble, paragraph (b). In my opinion the language of the Act shows that the Act was intended and, for the Australian Capital Territory, continues to be intended to confer jurisdiction on the Federal Court even where, as here, there has not been a transfer of proceedings. I refer to the balance of the preamble and to the terms of s 5 in contrast to the terms of s 9. I refer also to the structure of s 9(3) dealing separately, in paragraphs (a) and (b), with the jurisdiction conferred on the Court by reference to the content of a territory law relating to cross-vesting and the hearing and determination of proceedings transferred under such a provision. See also the Explanatory Memorandum to the Jurisdiction of Courts (Cross-Vesting) Bill 1986 at paragraph 5; and Bankinvest AG v Seabrook (1988) 14 NSWLR 711 at 713, 724 and 725-6.
45 In my view this analysis establishes the jurisdiction of the Federal Court to hear and determine the substantive defamation proceedings. It follows that the interlocutory application should be dismissed.
46 Because it is not necessary to decide other jurisdictional questions involving the Constitution the Court should not do so: see ICM Agriculture Pty Ltd v Commonwealth (2009) 240 CLR 140 at [141] and the authorities there cited. In particular, I do not consider whether disputes under Chapter 9 of the Civil Law (Wrongs) Act 2002 (ACT) or the common law as it applies in the Australian Capital Territory otherwise arise under laws made by the Parliament within s 76(ii) of the Constitution: compare O'Neill v Mann (2000) 101 FCR 160.