Did the parties agree to submit the current dispute to arbitration?
20Before answering this question, it is necessary to say something more about the current proceedings.
21The structure of the SOP Act is that a contractor who becomes entitled to a progress payment may serve a payment claim under s 13. Under s 8 of the Act, the right to a progress payment only accrues on and from each "reference date" - that is, relevantly, a date determined in accordance with the contract as a date on which a progress payment is due. The claim must state that it is served under the Act and must be served within 12 months after the construction work to which the claim relates was last carried out or within the period specified by the contract, whichever is the later. The respondent to the claim then has 10 days (or such lesser time as is provided in the contract) to serve a payment schedule indicating the amount that the respondent is willing to pay and, if it is not willing to pay the full amount claimed, the reasons. Section 15 applies if the respondent does not serve a payment schedule within time. Section 15(2) provides that the claimant may either recover the amount claimed "as a debt due to the claimant, in any court of competent jurisdiction" (s 15(2)(a)(i)) or make an adjudication application under s 17(1)(b) in relation to the payment claim (s 15(2)(a)(ii)). Section 15(4) provides:
If the claimant commences proceedings under subsection (2)(a)(i) to recover the unpaid portion of the claimed amount from the respondent as a debt:
(a) judgment in favour of the claimant is not to be given unless the court is satisfied of the existence of the circumstances referred to in subsection (1) [that is, that the time for serving a payment schedule has expired and the claim has not been paid in full], and
(b) the respondent is not, in those proceedings, entitled:
(i) to bring any cross-claim against the claimant, or
(ii) to raise any defence in relation to matters arising under the construction contract.
22Siemens commenced the current proceedings seeking relief under s 15(2)(a)(i). Origin seeks to defend the proceedings on two bases. First, it says that there was no relevant reference date because the acoustical requirements set out in the contract had not been met. Second, it says that it was induced not to serve a payment schedule by Siemens' misleading and deceptive conduct in serving what is said to be an erroneous acoustical test report. In doing so, it relies on the decision of the Court of Appeal in Bitannia Pty Ltd v Parkline Constructions Pty Ltd [2006] NSWCA 238; 67 NSWLR 9. In that case, the Court of Appeal held that it was possible to raise misleading and deceptive conduct as a defence to a claim under s 15(2)(a)(i) (and not simply by way of cross-claim) and that that defence did not arise under the construction contract and so was not prohibited by s 15(4)(b)(ii). Siemens takes issue with these defences. It points out that the entitlement to make a payment claim is given " not just to someone ... entitled to a progress payment but to someone who claims to be so entitled" (to use the words of McDougall J in Energetech Australia Pty Ltd v Sides Engineering Pty Ltd [2005] NSWSC 801 at [20]). As a result, it says that there can be no merit in the first defence. Nor can there be any merit in a defence that relies on the Trade Practices Act to vitiate the reference date, since the existence of a reference date is not necessary to enforce the statutory debt arising from the payment claim. Whether that is a correct characterisation of the defence based on the Trade Practices Act is doubtful. In any event, it is not an issue that needs to be resolved in the context of the current application. The essential point is that, in light of the decision of the Court of Appeal in Bitannia , there is an arguable case that Origin has a defence to Siemens claim that is not barred by s 15(4)(b)(ii) of the SOP Act. The question is whether the parties agreed to submit the dispute raised by Siemens' claim and that defence to arbitration. In my opinion, they did.
23Although the seat of the arbitration is Melbourne and the laws of the arbitration are those of Victoria, both parties accepted that the arbitrators are bound to apply New South Wales law, including the SOP Act.
24The nature of the disputes that may be submitted to arbitration is expressed very broadly in cl 36.1(b) of the contract. It includes any dispute "concerning or arising out of or in connection with or relating to this Contract or the subject matter of this Contract". Each of the expressions "concerning", "arising out of", "in connection with" and "relating to" are expressions of wide meaning. Moreover, arbitration clauses are generally construed widely. As Allsop J (with whom Finn and Finkelstein JJ agreed) explained in Comandate Marine Corp v Pan Australia Shipping Pty Ltd [2006] FCAFC 192; 157 FCR 45 at [165]:
This liberal approach is underpinned by the sensible commercial presumption that the parties did not intend the inconvenience of having possible disputes from their transaction being heard in two places. ... The benevolent and encouraging approach to consensual alternative non-curial dispute resolution assists in the conclusion that words capable of broad and flexible meaning will be given liberal construction and content.
Similarly, Gleeson CJ (with whom Meagher and Sheller JJA agreed) said in Francis Travel Marketing Pty Ltd v Virgin Atlantic Airways Ltd (1996) 39 NSWLR 160 at 165:
Where the parties to a commercial contract agree, at the time of making the contract, and before any disputes have arisen, to refer to arbitration any dispute or difference arising out of the agreement, their agreement should not be construed narrowly. They are unlikely to have intended that different disputes should be resolved before different tribunals, or that the appropriate tribunal should be determined by fine shades of difference in the legal character of individual issues, or by the ingenuity of lawyers in developing points of argument.
25On its face, it seems to me that a dispute about whether Origin should make a progress payment under the contract is a dispute concerning etc the contract or the subject matter of the contract. The fact that it could also be said to be a dispute that arises out of the SOP Act does not make the dispute any less one that is concerned with or connected with the contract or its subject matter. The arbitration clause only requires the dispute to have a particular character (or, perhaps more accurately, one or more of a number of characters). The fact that it may be possible to characterise the dispute in other ways does not deprive it of the character required by clause 36.1(b) of the contract.
26There is a question in this case whether disputes under the SOP Act are arbitrable. I deal with that question below. Generally, where a contract is ambiguous, a court will prefer an interpretation which makes the contract lawful to one that does not: see K Lewison, The Interpretation of Contracts, Sweet & Maxwell, London, 2007, 4 th ed, 275f; Global Network Services Pty Ltd v Legion Telecall Pty Ltd [2001] NSWCA 279 at [102] per Mason P, dissenting. In this case, however, there is no ambiguity in cl 36.1(b). It is expressed in broad terms; and, in my opinion, the parties intended by that clause to refer all disputes concerning the contract and its subject-matter to arbitration.
27It is true that the Court of Appeal held in Bitannia at [124] that a defence under the Trade Practices Act that service of a payment claim was not effective because it involved misleading and deceptive conduct was not a defence in relation to matters arising under the construction contract for the purposes of s 15(4)(b)(ii) of the SOP Act. However, the dispute in this case must take its character not simply from the defence, or one of the defences, raised by Origin. It must also take its character from Siemens' claim. That claim is a claim connected with the contract, since it is a claim for money said to be due under the contract. Moreover, the fact that the Court of Appeal held that the words "a matter arising under the construction contract" as used in s 15(4)(b)(ii) of the SOP Act were not sufficiently broad to catch a defence based on the Trade Practices Act does not mean that the words "concerning or arising out of or in connection with or relating to this Contract or the subject matter of this Contract" as they appear in an arbitration clause were not sufficiently broad to do so. The use of a series of connectors in the arbitration clause, each generally regarded as being broad, is a clear indication that the parties intended the clause to operate as broadly as possible.
28Siemens says that, at the time the arbitration clause was drafted, a dispute under the SOP Act could not be made the subject of arbitration and that cl 36 must be interpreted in that light. At the time the original contract was entered into, arbitrations were governed by the Commercial Arbitration Act 1984 (the CA Act 1984 ). Section 3(8) of that Act (which was inserted by the SOP Act at the time it was passed) provided:
Nothing in this Act affects the operation of Part 3 of the Building and Construction Industry Security of Payment Act 1999 .
There is no equivalent provision in the CA Act 2010.
29Siemens submits that the effect of s 3(8) of the CA Act 1984 is that a dispute concerning the SOP Act was not arbitrable at the time the contract was entered into and that cl 36 should not be interpreted as an agreement to submit to arbitration a dispute that was not arbitrable at that time.
30In my opinion, there are three difficulties with that submission.
31First, as I have already said, there is no ambiguity in cl 36.1(b) that would permit the court to read the clause down in the way contended for by Siemens.
32Second, it is not obvious that s 3(8) of the CA Act 1984 has the meaning contended for by Siemens. The SOP Act provides for a right to obtain progress payments and provides a procedure for resolving disputes concerning that right. Section 3(8) of the CA Act 1984 states that that Act does not affect that right or that procedure. That might have been thought to have been necessary because both Acts provide for a form of dispute resolution, and the legislature may have been concerned to make sure that the procedure under the CA Act 1984 could not be used as a substitute for the procedure available under the SOP Act. But it does not follow that s 3(8) prevents the parties from agreeing to refer to arbitration an issue concerning that right or procedure that would otherwise be justiciable in a court.
33Third, in my opinion, clause 36 should be interpreted as having an ambulatory effect. The clause requires the parties to submit to arbitration any dispute of the type described in the clause. It is not restricted to disputes that could have been arbitrated at the time the contract was entered into; and there is no reason to restrict the clause in that way. To take and example, cl 36.1(b)(ii) defines "Dispute" to include any claim "pursuant to any applicable state, territory, Commonwealth, foreign or international statute or law". If legislation were passed during the course of the contract that altered the parties' rights and obligations arising from the contract, then a claim arising under that legislation would be still be a claim falling within cl 36.1(b)(ii). Similarly, if a dispute of a particular type were not arbitrable at the time the contract was entered into but became arbitrable as a consequence of a legislative change, then, if a dispute of that type arose after the legislative change, there is no reason why cl 36 should not be interpreted as an agreement to refer that dispute to arbitration if it was of a type described by the clause. That leaves open the question whether the current dispute is arbitrable having regard to the terms of the CA Act 2010. I return to that question below.
34In my opinion, the dispute that is the subject of these proceedings is one that the parties agreed to refer to arbitration by the amendment agreement entered into on or about 21 December 2010. By the amended clause 36.3(a), the parties agreed to refer to arbitration "[a]ny dispute arising prior to 20 December 2010". Although the word "dispute" is not capitalised in the introductory words, it is capitalised elsewhere in the clause and, in my opinion, it was intended to have the same meaning on each occasion when it was used in the clause. Consequently, what was referred to arbitration was anything meeting the description of a "Dispute" as defined in the contract that arose prior to 20 December 2010. For the reasons I have given, the dispute the subject of the current proceedings falls within the definition of "Dispute". In my opinion, it is also a dispute that arose prior to 20 December 2010. The heart of the dispute in these proceedings is that Siemens is seeking to enforce a payment claim in respect of Practical Completion of Unit 14 (and a subsequent payment claim for interest) and Origin is disputing its entitlement to do so. That dispute arose when Siemens served two payment claims that were expressed to be under the SOP Act and Origin refused to pay them on the ground that Siemens had engaged in misleading and deceptive conduct. The fact that, as a result of what has happened, Siemens' specific claim is under s 15(2)(a)(i) of the SOP Act and Origin seeks to defend that claim does not mean that the dispute that is the subject of these proceedings is different from the one that arose prior to 20 December. The dispute is still concerned with whether Siemens should be entitled to recover the amounts claimed in its payment claims.
35Even if the conclusion of the previous paragraph is incorrect, for the reasons I have given, the parties have agreed that disputes of the current type will be dealt with in accordance with cl 36 of the contract. That clause requires the parties to refer the dispute to arbitration if it cannot be settled in without prejudice negotiations. In those circumstances, and subject to the question of arbitrability, it would be appropriate to stay the proceedings in order for that dispute resolution mechanism to operate.