The construction argument
33 Mr Maconachie refined the point in issue during his oral submissions. Senior Counsel argued that s 15B did not authorise the trial Judge to find that the care provided to Nabila in this matter by the respondent and his wife (or at least a good deal of it) fell within the concept of domestic services. Mr Maconachie did not attempt to define the boundaries of his suggested construction of s 15B with any degree of precision. He focused, however, on those care services that approached or equated to nursing or palliative care. Specifically, the trial Judge had found that Nabila was unable to shower or use the lavatory without assistance. She required a catheter to pass urine and the catheters had to be inserted a number of times during the day and once during the night. She was wheelchair bound and required assistance for movement 24 hours a day. In order to maintain her muscle tone, the plaintiff and his wife had between them undertaken a number of daily sessions of stretching Nabila's limbs, including massaging them and moving them around. She had to be put into splints in the daytime, and at night into a special brace for sleeping. Her limbs were also massaged on these occasions. These types of services, the appellant maintained, were not, upon the proper construction of s 15B, domestic services. Rather they were nursing or palliative care services, which the section did not recognise.
34 The appellant's arguments took as their background the existing state of the law on the relevant topic prior to the creation of s 15B in 2006. It then focused on the language of s 15B and its context in the Civil Liability Act 2002 especially its relationship to s 15. Both parties referred the Court to a convenient summary of the legislative history as it had been recounted by Campbell JA in Amaca Pty Limited v Novek [2009] NSWCA 50 at [27] - [29]: -
" Legislative History
[27] In Sullivan v Gordon (1999) NSWCA 338; (1999) 47 NSWLR 319 this Court held that when tortious conduct injured a plaintiff in a way that prevented the plaintiff from providing care to other members of the plaintiff's household, the loss of the capacity to provide that care was compensable as "compensation…for the value of services of a domestic nature" under s 72 Motor Accidents Act 1998. In reaching that conclusion the Court accepted, and evidently approved of, a concession by counsel that damages of that kind were recoverable under the common law.
[28] The High Court in CSR Limited v Eddy [2005] HCA 64; [2005] 226 CLR 1 over ruled Sullivan v Gordon. CSR v Eddy held that, while loss of the capacity to provide gratuitous personal or domestic services was compensable, the compensation should be given as part of the general damages, not as a separate item of damage the quantum of which is assessed, as it had been in Sullivan v Gordon, by reference to the commercial cost of providing the services that the plaintiff cannot provide.
[29] The High Court decided CSR v Eddy in October 2005. In May 2006, the Civil Liability Amendment Bill was introduced in the New South Wales Parliament, and in June 2006, the Civil Liability Amendment Act 2006 was assented to and commenced. It is quite clear that one of the purposes of the 2006 legislation was to alter the law stated in CSR v Eddy, and to reinstate a head of damages akin to, but not in all respects identical to, that which had been recognised in Sullivan v Gordon".
35 I shall now set out the relevant portions of s 15B of the Civil Liability Act 2002. The section is headed "Damages for loss of capacity to provide domestic services".
36 The key provision is sub-section 2. It is in the following terms: -
" 2. When damages may be awarded
Damages may be awarded to a claimant for any loss of the claimant's capacity to provide gratuitous domestic services to the claimant's dependents, but only if the Court is satisfied that:
(a) In the case of any dependents of the claimant of the kind referred to in paragraph (a) of the definition of "dependents" in subsection (1) - the claimant provided the services to those dependents before the time that the liability in respect of which the claim arose, and,
(b) the claimant's dependents were not (or will not be) capable of performing the services themselves by reason of their age or physical or mental capacity, and
(c) there is a responsible expectation that, but for the injury to which the damages relate, the claimant would have provided services to the claimant's dependents:
(i) for at least 6 hours per week, and
(ii) for a period of at least 6 consecutive months, and
(d) there will be a need for the services to be provided for those hours per week and that consecutive period of time and that need is reasonable in all the circumstances."
37 Dependents, in relation to a claimant are defined in subsection 1. They are defined to mean:
"(a) Such of the following persons as are wholly or partly dependent on the claimant at the time that the liability in respect of which the claim is made arises:
(i) a husband or wife of the claimant,
(ii) a de-facto partner of the claimant , being a person who has a de-facto relationship (within the meaning of the Property (Relationships) Act 1984 (with the claimant),
(iii) a child, grandchild, sibling, uncle, aunt, niece, nephew, parent or grandparent of the claimant…,
(iv) any other person who was a member of the claimant's household, and
(b) Any unborn child of the claimant…at the time of the liability in respect of which the claim is made arises and who is born after that time".
38 The phrase "gratuitous domestic services" is defined to mean "services of a domestic nature for which the person providing the service has not been paid or is not liable to be paid".
39 The method of determination of the amount of damages for loss of this capacity is provided in s 15B sub-ss 4 and 5. There is no need for me to set out the detail of those provisions. They provide a cap on damages and a statutory reminder that, where damages are awarded under this head, the Court must not include in any damages awarded to the claimant for non-economic loss a component that compensates the claimant for the loss of the capacity to provide domestic services.
40 In addition, there is no need for me to detail the other provisions of s 15B as they are not determinative of or instructive in relation to the resolution of the present debate.
41 Mr Maconachie's submissions examined the expression "domestic services" in its ordinary meaning. The Macquarie Dictionary defines "domestic" as "of or pertaining to the home, the household, or household affairs". The Shorter Oxford English Dictionary adds: -
"household, home, family".
42 Senior counsel submitted that in the legislation the phrase "domestic services" should be given a limited or restricted meaning. Counsel's argument took as its centre piece the relationship between ss 15 and 15B, of the Civil Liability Act 2002 especially the structural interconnection between the two sections. For this reason, it is necessary to refer to the definitions in s 15 of the Civil Liability Act 2002. Section 15 is concerned with damages for gratuitous attendant care services. These are known as Griffiths v Kerkemeyer damages (1977) 139 CLR 161. In that case, the High Court had held that in a claim for personal injury the plaintiff was entitled to recover an amount equivalent to the commercial cost of nursing and domestic services which had been gratuitously provided in the past, and would be provided in the future by the family or friends of the plaintiff. Subsequently, in Van Gervan v Fenton (1992) 175 CLR at 332-333, the High Court approved the earlier decision, stating that the true basis of the claim was the need of the plaintiff for the services: the plaintiff did not have to show that the need was or might be productive of financial loss. Section 15 recognised the existence of this somewhat controversial head of damages but imposed both significant thresholds and a cap on damages. For present purposes, it is necessary to note only the opening definitional paragraph: -
" Damages for gratuitous attendant care services
15(1) In this section:
"Attendant Care Services" means any of the following:
(a) services of a domestic nature,
(b) services relating to nursing,
(c) services that aim to alleviate the consequences of an injury.
"Gratuitous attendant care services" means attendant care services:
(a) that have been or are to be provided by another person to a claimant, and
(b) for which the claimant has not paid or is not liable to pay."
43 In relation to the history and structure of the legislation, senior counsel noted that s 15 was in the Civil Liability Act 2002 at its inception. Section 15B was inserted in the Act, as I have said earlier, by the Civil Liability Amendment Act (No 55 of 2006). Section 15A in its then form, was removed from the Act and replaced by a new section 15A which contained the following subsection:
"(4) In this section, attendant care services and gratuitous attendant care services have the same meanings as they have in s 15".
44 The appellant argued that Parliament plainly intended "attendant care services" to refer to something different from "gratuitous domestic services" where that expression appeared in s 15B. Consequently, the argument proceeds, there is a clear distinction between matters of a domestic nature on the one hand, and nursing or palliative care on the other, at least in relation to the proper construction of s 15.
45 This proposition lead to the central plank in the appellant's argument: it submitted that "gratuitous domestic services" (where appearing in s 15B) were intended to mean something different from, and more limited than, "attendant care services". The ultimate submission appears in the following paragraphs of the written submissions:
"40. It is clear that s 15B was introduced (perhaps by way of political comprise) to cover a part, and part only, of that which had been found by the Court of Appeal in Sullivan v Gordon to be available by way of damages at common law, and to limit such damages.
41. That conclusion is supported by the appearance in s 15 of notions of domestic care, nursing care and palliative care but the presence in s 15B of a notion which is restricted to domestic care - that is, "gratuitous domestic services" is defined in s 15B(1) to mean "services of a domestic nature for which the person providing the services has not been paid and is not liable to be paid". The words "services of a domestic nature" describes one of the three notions addressed, in precisely those terms, in the definition of attendant care services in s 15.
42. It must be concluded, on principles of statutory construction, and commonsense, that Parliament was intending to address in s 15B one only of three types of care to which s 15 extended - domestic, nursing and palliative care must mean something different from one another…".
46 Upon this analysis, counsel argued that in the present matter the loss for which the respondent sought and recovered damages was a loss of capacity to provide domestic services that, at least in part, properly answered the ordinary meaning of nursing or palliative (alleviating) care. Consequently, as a matter of statutory construction, s 15B was incapable of supporting the award the trial Judge made, at least in terms of those care provisions being given to Nabila which fell within the notion of nursing or palliative care.
47 Ms Norton SC, for the respondent, argued that the difference in terminology between ss15 and 15B simply arises by reason of the purpose of the various sections. Sections 15 and 15A deal with services provided to a claimant. Section 15B deals with services which the claimant can no longer provide to others. It is this difference, senior counsel argued, that results in different words being used in different sections in the legislation. This distinction was at the heart of the High Court's finding in CSR Limited v Eddy that the two heads of damages were not analogous.
48 Ms Norton submitted that this Court was entitled to have regard to the Second Reading Speech to identify the mischief sought to be overcome by the 2006 Enactment of s 15B. Ms Norton suggested the Second Reading Speech showed that Parliament had plainly determined to overturn the effect of the High Court decision in CSR Limited v Eddy but, in so doing, had left it to trial courts to determine whether any particular domestic services might be reasonable in a given claim.
49 The respondent accepted that s 15B seeks to place a limit on Sullivan v Gordon damages available but argued that the limit was achieved by way of the imposition of a threshold and a cap on the hourly rate. At paragraphs 20 and 21 of the written submissions the respondent said: -
"20. It is submitted that the expression "services of a domestic nature" as it appears in s 15B includes all facets of care of others including children, the elderly or the disabled which would, but for the injury, have been carried out by an injured party because of his or her domestic situation. Sub-section 2 places limits on when damages may be awarded but does not seek to limit the services for which those damages can be awarded. In particular, sub-section 2(b) provides that compensation should not be awarded if the dependents are capable of performing the services for themselves. Thus there is a need to show that, by reason of their age or physical or mental incapacity, they are incapable of performing such services. People with physical and mental disabilities are likely to need more assistance than mere housework.
21. If the appellant's submissions were correct, the only services to Nabila which the respondent could claim would be limited to house cleaning, meal preparation, laundry and the like. Section 15B is clearly directed to damages in respect of the care of persons who cannot care for themselves. Such persons typically need extensive personal care and assistance".
50 Ms Norton's final submission suggested that the construction of s 15B suggested by the appellant was completely at odds with the statutory intention to benefit those whose damages arose from a loss of capacity to provide for family members with the greatest needs, such as the respondent who had the care of a disabled daughter.