Second issue: Do Parts 1A and 2 of the CLA apply to Dr Nair-Smith's claim for a breach of the term implied by s 74(1) of the former TPA?
5The next issue is of great importance to the parties' rights. In the principal judgment at [120] to [125] I noted that Dr Nair-Smith's cause of action for the breach of the term implied by former s 74(1) of the TPA arose prior to the introduction into the TPA of s 74(2A). I noted that the legislation introducing s 74(2A) did not purport to have retrospective effect (at [121]) and, in any event, by its terms it only applies to a contract made after the provision commenced. Subsection 74(2A) picked up and applied the limitations on damages found in Part 2 of the CLA (Insight at [155] per Sackville AJA).
6Thus the question arises as to whether the restrictions on damages found within Part 2 of the CLA applied to Dr Nair-Smith's claim for a breach of the term implied by s 74(1)? Similarly, does Part 1A of the CLA limit or regulate the means of establishing a breach of the implied term? Dr Nair-Smith submitted that the answer to both questions was "no". Perisher submitted that the answer to both questions was "yes".
7Critical to answering these questions is the High Court's judgment in Wallis v Downard-Pickford (North Queensland) Pty Ltd [1994] HCA 17; 179 CLR 388. In Wallis a carrier sought to rely on s 6(1) of the Carriage of Goods by Land (Carriers' Liabilities) Act 1967 (Qld) (the "Carriers' Liabilities Act"), which limited the monetary amount for which a carrier could be liable, in answer to claim for a breach of a term implied into the contract of carriage by s 74(1) of the TPA. Further, s 9(1) of Carriers' Liabilities Act deemed to be incorporated in every contract of carriage a clause to the effect of s 6(1). The appellant contended that his cause of action for a breach of the term implied by s 74(1) of the TPA was not governed or otherwise restricted by either of ss 6(1) or 9(1) of the Carriers' Liabilities Act.
8Toohey and Gaudron JJ upheld the appellant's argument, stating as follows (at 396 to 397):
"... The essence of the [appellant's] submission was that the statutory creation of a contractual obligation is inherently accompanied by a full contractual remedy. Section 74, it was submitted, implies into relevant contracts a term which contains the primary obligation to take due care and skill and a secondary obligation to provide compensation for breach.
In support of this submission, the appellant pointed to s 68(1)(c) which renders void any term of a contract that purports to modify a warranty imposed by, among other provisions, s 74. This provision was said to demonstrate the Trade Practices Act's concern with liability as well as the creation of rights. Such a provision was not necessary to override State legislation 'because section 109 does that work'. The appellant pointed also to ss 73 and 74B which deem a contractual liability to exist for breach of an implied warranty in the case of certain persons with whom the consumer does not have a direct contractual relationship. These submissions have force. It would indeed be extraordinary if non-contractual parties had greater rights to recovery than did a consumer who is party to a contract in relation to which s 74 operates.
It follows that the warranty created by s 74 carries with it full contractual liability for breach. Section 6(1) of the Queensland Act purports to limit that liability. The consequence is that there is a conflict between the two statutes, a conflict which amounts to a direct inconsistency in the sense that the Queensland Act detracts from the full operation of a right granted by the Trade Practices Act (Clyde Engineering Co. Ltd. v. Cowburn [1926] HCA 6; (1926) 37 CLR 466 at 478 per Knox CJ and Gavan Duffy J; Victoria v. The Commonwealth [1937] HCA 82; (1937) 58 CLR 618 at 630 per Dixon J; Ansett Transport Industries (Operations) Pty. Ltd. v. Wardley [1980] HCA 8; (1980) 142 CLR 237 at 259-260 per Mason J). The limitation is therefore, to that extent, invalid by reason of s 109 of the Constitution." (emphasis added)
9Their Honours also addressed s 9 of the Carriers' Liabilities Act (at 398):
"... Because s 6 is a term of relevant contracts of carriage, that term is rendered void in each case by the operation of s 68(1)(c). Further, s 9 itself is impugned in that it purports to imply into contracts exactly those terms that s 68 forbids. It can therefore be seen as inconsistent with s 68 for the purposes of s 109 of the Constitution. It is also the case that s 5 of the Queensland Act, which provides that the liability of a carrier shall be upon 'the bases prescribed by this Act and not otherwise', is invalid under s 109 of the Constitution to the extent that it purports to preclude the operation of ss 68 and 74 of the Trade Practices Act."
10Deane and Dawson JJ (at 393) and McHugh J (at 401) agreed with these aspects of Toohey and Gaudron JJ's judgment, although they expressed different reasons for concluding that former s 74(3) of the TPA had no application. That matter is irrelevant to these proceedings.
11Senior Counsel for Perisher, Mr Sexton SC, noted that the operation of former s 74(1) of the TPA was different to that of a number of other provisions in former Part V of the TPA (eg s 52) in that s 74(1) did not create a cause of action the remedies for which were to be found in the TPA. Instead the only cause of action is for breach of the term implied into the contract by s 74(1) (Arturi v Zupps Motors Pty Ltd [1980] FCA 164; 49 FLR 283, cited in Wallis at 398). Mr Sexton SC submitted that the regulation of the means of proving a breach of contract and the remedies for such a breach was generally a matter of state law subject to any express provision made to the contrary by Commonwealth law. Thus he contended that the source of law for a demonstrated breach of the term implied by s 74(1) was State law, which in this case included the restrictions on damages found within Part 2 of the CLA.
12Unconstrained by authority there is force in this argument. However it is directly inconsistent with the judgment of Toohey and Gaudron JJ in Wallis and, in particular, the reference by their Honours to "full contractual liability for breach" in the passage extracted above. Their Honours accepted the submission that the implication by federal law of the term provided for in s 74(1) necessarily carried with it a remedy of damages assessed at common law and that any attempt to limit that remedy created a "direct inconsistency" for the purposes of s 109 of the Constitution. I was not referred to any subsequent discussion of Wallis that affects this analysis. In the Court of Appeal in Insight Basten JA and Sackville JA discussed Wallis in these terms at [98] and [143] respectively. Spigelman CJ cited the supplementary explanatory memorandum to the legislation that introduced s 74(2A) which recorded an understanding on the part of the Commonwealth that Wallis had this effect.
13Even if it was thought that the approach to s 109 of the Constitution in the above passage from Wallis was reconsidered or superseded by that adopted in Momcilovic v R [2011] HCA 34; 245 CLR 1, and I doubt that it was, it would not affect the outcome of Wallis. In any event, this Court is still bound by Wallis. I am unable to discern any relevant distinction between s 6(1) of the Carriers' Liabilities Act and the restrictions found within Part 2 of the CLA. I am bound by the decision in Wallis to find that the damages that Dr Nair-Smith can recover for breach of the term implied by s 74(1) of the TPA are not subject to the limitations found within Part 2 of the CLA.
14I note three further points.
15First, Mr Sexton SC pointed to other aspects of State law that regulate the enforcement of contractual remedies such as limitation periods and submitted that Wallis is not authority for the proposition that they do not apply to actions for breach of a term implied into a contract by s 74(1) of the TPA. I accept that, as a consequence of Wallis, there maybe some uncertainty as to whether some aspect of State law is inconsistent with the "full contractual liability" that s 74(1) implies, but it need not be resolved in this case.
16Second, Mr Sexton SC also submitted that the reference to "full contractual liability" in the extract from Wallis at [7] needs to be considered with that part of the judgment that addressed the operation of s 9(1) of the Carriers' Liabilities Act (extracted at [9]). He submitted that s 9(1) was directly inconsistent with former ss 68(1) and 74(1) in that the former operated to imply a limitation on liability into the contract in the form provided for by s 6(1), whereas the latter operated to ensure that no such term of the contract could, inter alia, restrict or modify any liability for a breach of the term implied by s 74(1). While I accept that the passage extracted in [9] is to that effect, Toohey and Gaudron JJ's analysis of s 9 of the Carriers' Liabilities Act was additional to their finding that s 6(1) of that Act impaired the "full contractual liability" said to be conferred by s 74(1).
17Third, to this point the relevant limitations that have been considered are those provisions in Part 2 of the CLA that restrict the recovery of damages. As stated, I do not consider that there is any relevant distinction between those provisions and s 6(1) of the Carriers' Liabilities Act considered in Wallis. However, prima facie the regime of establishing liability for negligence found in Part 1A of the CLA is also applicable to a claim that there was a failure to comply with the term implied by s 74(1) (principal judgment at [82]). The regime in Part 1A includes numerous exceptions and exclusions, so that there may be circumstances in which the services will not be rendered with due care and skill, yet no liability attaches. For example, s 5L precludes liability for harm suffered from obvious risks of dangerous recreational activities (as defined). Clearly there can be a breach of the term implied by s 74(1) when services are supplied to a person who engages in such an activity.
18If Part 1A applies to claims for a breach of the term implied by s 74(1) then it would effectively rewrite the term. It would give rise to a direct inconsistency in that Part 1A would "alter, impair or detract from" s 74(1) (Victoria v The Commonwealth [1937] HCA 82; 58 CLR 618, "The Kakariki Case", at 630 per Dixon J). Consistent with Wallis, the regime of liability found in Part 1A of the CLA is also rendered inapplicable to actions for breach of the term implied by s 74(1) by the operation of s 109 of the Constitution.
19Accordingly the answer to both of the questions posed in [6] is "no".