Jacobs J went on to say (at 447):
"It will generally be found in the case of an employee and it will often be found in the case of a sub-contractor that, though performance of the acts necessary to performance of some statutory duties may properly be delegated to them, the performance of other acts and the compliance with other statutory duties will remain the direct obligation of the employer or the head contractor as the case may be. Whether in any particular case this is so will depend upon the circumstances".
22 Earlier, Jacobs J (at 446) dealt with the situation where a person carrying out building work delegates work to a sub-contractor but still has a statutory duty not to expose that sub-contractor to accident risk. His Honour said:
"When an employee is instructed to do building work in circumstances where the employer has a statutory duty to do acts or things in order to ensure their safety when engaged on the building work there must be more than an implication that they will take any necessary preliminary steps in order to ensure that the work which they are instructed to do is done in conditions where under the statutory duty of the employer is fulfilled. An employee must be particularly directed to do the specific work necessary in order to fulfil the employer's statutory duty and must be provided with all material, assistance and supervision necessary to ensure his ability to comply with the statutory duty. A sub-contractor must be under a particular contractual obligation expressed or necessarily to be implied from the nature of the work to carry out the preliminary work necessary to ensure that when he and those under him are engaged in the building work they will be so engaged in conditions which satisfy the statutory duty".
23 In my opinion, the reasons for judgment of Mason and Jacobs JJ are not inconsistent with those of Barwick CJ. They can readily be reconciled.
24 The essential point made by Barwick CJ was that whether a person was obliged to comply with the regulation depended upon whether that person was actually carrying out building work: see Hetherington v Mirvac Pty Limited [1999] NSWSC 443 per Wood CJ at CL.
25 Mason J held that where a person participates, whether by act or approval, in the building work carried on by the independent contractor to whom the work has been delegated, that person is duty bound by reg 73. There is nothing in this proposition that departs from anything said by Barwick CJ.
26 Jacobs J pointed out that, where a head contractor instructs some other person to carry out part of the building work, circumstances may arise that require preliminary steps to be taken to ensure that the work which the other person is instructed to do can be done safely. The issue then arises as to the responsibility for those preliminary steps. It must be a question of fact in each case as to whether the other person has been instructed to perform the preliminary steps as well as the work, the subject of the express instructions.
27 According to Jacobs J, the head contractor will only be regarded as having instructed the other person to perform the preliminary steps if that person was particularly directed to do the specific work "necessary in order to fulfil the [head contractor's] statutory duty". That is to say, according to his Honour, the head contractor will only avoid having a statutory duty in regard to the preliminary steps if the head contractor particularly directs the other person to take those steps. Additionally, the other person "must be provided with all material, assistance and supervision necessary" to ensure compliance with reg 73.
28 These remarks have to be seen in the context of the statement by Barwick CJ that under the regulations a head contractor owes no duty thereunder in respect of work delegated by it. Jacobs J was merely saying that a court will be slow to hold that instructions to another person to carry out specific work impliedly include instructions to perform the preliminary steps that may be required to make that work safe. His Honour observed that where the express instructions do not cover the preliminary steps, the head contractor may continue to owe statutory duties in regard to the work involved in those steps. Nothing in this approach departs from that of Barwick CJ.
29 It is not unusual for a head contractor to delegate a specific task to a sub-contractor and to say nothing about the ancillary work or preliminary steps necessary to ensure the safety of those who will be working on the delegated task. In that event, the task of doing the work necessary to complete the ancillary work or preliminary steps may well not be within the work delegated. In such a situation, were the head contractor not to be duty bound to comply with reg 73 in regard to the ancillary work or preliminary steps, there would be a gap in the security net that the regulation is intended to provide. The safety of all involved in the total building enterprise would then not be secured. The strictures expressed by Jacobs J are designed to prevent such a gap from opening. To ensure that the policy of the legislation, as enunciated by Barwick CJ, is fulfilled, the approach of Jacobs J should be adopted.
30 At this stage, it is apposite to say something about the work done by Maggiotto as the head contractor on the site.
31 Maggiotto had only two labourers on the site and their work was cleaning. All structural and construction work, involving all the various trades engaged to construct the 35 units, was being carried out by sub-contractors. This involved the excavation work, the form work and pouring of concrete, the formation of walls and bricklaying, roof trusses and the formation of the roof, and various aspects of carpentry work. Plainly, a great deal of co-ordination and supervision was required. This task was assumed by Maggiotto.
32 Frank Sgambellone was the Maggiotto foreman on the site. His task, according to his testimony, was "project management of trades and progress of job" He said that project management entailed "virtually control of sub-contractors, purchase ordering, liaising with architects, engineers, Department of Housing". Maggiotto, through Mr Maggiotto and Sgambellone, in fact gave directions as to when and where the work was to be done. Those persons, on Maggiotto's behalf, supervised and co-ordinated the various activities and trades involved.
33 In this process of supervision and co-ordination, Sgambellone instructed and permitted the various sub-contractors to go to the various areas where they were working whenever it was appropriate for them to do so.
34 Sgambellone said that he had a system which he adopted in determining when the fit out carpenter would commence his tasks. The system was to instruct the carpenter to commence his joinery work after the gyprock walls were lined. Sgambellone would, from time to time, as a carpenter would finish his work in one unit, instruct the carpenter to proceed to commence work on another unit. In particular, as regards Gordon, Maggiotto told him where and when to work. Sgambellone accepted that one of his tasks was to provide Gordon with continuity of work until he had completed his tasks. In cross-examination, when asked whether, when he was on site, he was under the direct control of Sgambellone, Gordon said:
"If Mr Maggiotto was not there, yes I'd be under Frank's control".
35 It was put to Gordon in cross-examination that Sgambellone, the foreman, "was the person who provided you with all the materials you needed on site, didn't he". He replied in the affirmative. Sgambellone agreed with the proposition that Maggiotto supplied the materials with which the various trades on the site "carried out their various activities". Thus, it was part of Maggiotto's supervisory and co-ordinating function to supply Gordon with necessary materials. These would include scaffolding, when necessary. In the case of unit 33, scaffolding was patently necessary for the purposes of bridging the void
36 Therefore, on the undisputed evidence, Maggiotto co-ordinated and supervised the different trades required for the completion of all the building work on site, and supplied the materials necessary for the trades to carry out their work. In performing these tasks Maggiotto was, in my view, performing building work (and, hence, construction work) within the meaning of the definition in s 3 of the Construction Safety Act.
37 This case therefore differs from Almeida v Universal Dye Works Pty Ltd [2000] NSWCA 264 (belatedly relied on by counsel for the appellant) where Santow AJA pointed out (at para 143) that the none of the respondents had done any construction work.
38 Gordon was instructed merely to do the carpentry work at unit 33 and to do so without there being stairs in place. He was not directed to do the specific work necessary to protect himself from the dangers and risks caused by the void. Nor was he supplied with scaffolding or other appropriate material. Additionally, the obligations of co-ordinating and supervising the work remained with Maggiotto, and these obligations had direct relevance to the safety of the work Gordon was instructed to perform. It follows that the performance of Maggiotto's duties under Regulation 73 was not "wholly delegated" to Gordon. Maggiotto still had to do construction work in regard to unit 33. That work involved co-ordinating and supervising the activities to be performed by Gordon and others, and supplying the necessary materials to Gordon.
39 There can be no doubt but that Maggiotto breached the duties imposed on it by reg 73.
40 Firstly, as part of its co-ordinating task, it should have ensured that the stairs were in unit 33 before Gordon commenced his carpentry work. The stairs were delivered to the site in pre-fabricated form and were to be installed in the units as soon as the gyprock lining in the unit was completed. Sgambellone said that the finishing carpenters were able to commence their work either before or after the stairs were installed and this indeed occurred (that is, they performed their work both before and after the stairs had been installed). The stage at which the stairs were installed appears to have been immaterial to Sgambellone. There was, however, an obvious need, for reasons of safety, to delay the carpenters' work until the stairs were installed. Maggiotto refused to do this in regard to unit 33. It thereby breached reg 73.
41 Secondly, as part of its task of supplying the necessary materials, Maggiotto should have supplied Gordon with appropriate scaffolding or other safe means of permitting him to have safe access to the interior of unit 33. Its failure to do so was also a breach of reg 73.
42 Thirdly, as a general proposition, Maggiotto failed to take all measures that appeared to have been necessary or advisable to minimise accident risk and to prevent injury to the health of persons engaged in construction work on the site. It thereby breached the regulation.