Principles relating to the scope of an expert's authority
69 Expert determination is simply a private contractual mechanism to which parties agree, and the determination does no more than create binding contractual rights and obligations: Illawarra Community Housing Trust Ltd v MP Park Lane Pty Ltd [2020] NSWSC 751 [62] per Hammerschlag J. The scope of the expert's authority and the effect of the determination on the resolution of the issues in dispute are therefore matters that are properly to be addressed by interpretation of the parties' contract.
70 A dispute resolution clause, including a clause by which the determination of a dispute is entrusted to an expert, is to be construed like any other clause in a commercial contract - that is, by reference to the language used by the parties, the circumstances known to them and the commercial purpose or objects to be secured by the contract: Lepcanfin Pty Ltd v Lepfin Pty Ltd (2020) 102 NSWLR 627, 647 [79] - [80] per Bell P (with whom Payne and McCallum JJA agreed). A construction is to be preferred that avoids "making commercial nonsense or working commercial inconvenience": Electricity Generation Corporation v Woodside Energy Ltd (2014) 251 CLR 640, 656 - 657 [35] per French CJ, Hayne, Crennan and Kiefel JJ, quoting Zhu v Treasurer (NSW) (2004) 218 CLR 530, 559 [82] per Gleeson CJ, Gummow, Kirby, Callinan and Heydon JJ.
71 Consistent with this preference for an interpretation that avoids working commercial inconvenience is the well-established proposition that dispute resolution clauses are, in general, to be afforded a broad and liberal construction: see Francis Travel Marketing Pty Ltd v Virgin Atlantic Airways Ltd (1996) 39 NSWLR 160, 165 per Gleeson CJ (with whom Meagher and Sheller JJA agreed); Comandate Marine Corp v Pan Australia Shipping Pty Ltd (2006) 157 FCR 45, 87 - 88 [164] - [165] per Allsop J (with whom Finn and Finkelstein JJ agreed); Lipman Pty Ltd v Emergency Services Superannuation Board [2011] NSWCA 163 [6] - [8] per Allsop P (with whom Young JA and Tobias AJA agreed); Rinehart v Welker (2012) 95 NSWLR 221, 247 [117] - [120] per Bathurst CJ.
72 It follows that, where the parties to a contract have referred a dispute between them to expert determination pursuant to a dispute resolution clause and the process of expert determination has run to completion, there remains limited scope for the outcome to be challenged. The usual extent to which an expert determination will be considered binding was explained straightforwardly by Hammerschlag J in Lainson Holdings Pty Ltd v Duffy Kennedy Pty Ltd [2019] NSWSC 576 at paragraph [39], as follows:
As the authorities on the subject make clear, the parties will be bound if the Expert did what the Contract, on its proper construction, required him to do, irrespective of the result. Conversely, the Determination will not be binding if the Expert went outside the ambit of what the Contract required him to do …
73 The simplicity of this statement conceals the potential difficulty, in many cases, of determining what exactly the expert was required by the contract to do. However, the case law does offer further guidance as to how that task ought properly to be approached.
74 An appropriate starting point is the judgment of McHugh JA in Legal & General Life of Australia Ltd v A Hudson Pty Ltd (1985) 1 NSWLR 314. After conducting an extensive review of the authorities, his Honour identified (at 335 - 336) several principles relevant to the validity of an expert determination, which can be summarised as follows:
(a) Whether a determination is binding depends, in the first instance, upon the terms of the parties' contract. The overriding question for the Court is whether the determination was made in accordance with those terms, not whether the expert made an error in their discretionary judgment.
(b) A determination that was obtained by fraud or collusion can usually be disregarded, as the correct conclusion to be drawn in such a case will almost certainly be that the determination was not made in accordance with the terms of the contract.
(c) An action for damages for negligence may lie against an expert if one party suffers loss as a result of a negligent determination. However, as between the parties, that determination can still stand.
(d) A term can readily be implied that a determination must be made honestly and impartially, such that it will be invalid if it is not. However, it will be difficult, if not impossible, to imply a term to the effect that the determination can be set aside on the grounds of mistake or unreasonableness.
(e) A mistake or an error on behalf of the expert will not, of itself, be sufficient to invalidate the determination, unless the mistake or error is of such a nature that the determination is not in accordance with the terms of the contract. If the determination can be said to have been made in accordance with the terms of the contract, then the mere fact that the expert has made an error in the application of relevant principles, such as the principles of valuation or accounting, will not usually vitiate the determination.
(f) It is similarly irrelevant, where the determination has been made in accordance with the terms of the contract, that the expert has taken into account matters that he or she should not have, or has failed to take into account matters that he or she should have.
75 The observations of McHugh JA have been followed on numerous occasions: see, eg, Holt v Cox (1997) 23 ACSR 590, 595 - 597 per Mason P (with whom Priestley JA agreed); Kanivah Holdings Pty Ltd v Holdsworth Properties Pty Ltd (2002) 11 BPR 20,201, 20,207 - 20,208 [45] - [50] per Stein JA (with whom Beazley JA agreed), 20,209 - 20,210 [70] - [75] per Giles JA; Galileo Miranda Nominee Pty Ltd v Duffy Kennedy Pty Ltd [2019] NSWSC 1157 [134] - [136] per Parker J.
76 They were also referred to by Applegarth J in Canaipa Developments Pty Ltd v TLC Jones Pty Ltd [2021] QSC 237 at paragraphs [57] to [77], where his Honour added further observations, by reference to more recent Australian authorities, regarding the manner in which the Court should approach the question as to the binding nature of an expert determination. The following propositions can be taken from his Honour's judgment:
(a) The identification of the matters that the parties have entrusted to the expert for determination will ultimately turn on the proper construction of the contract: Sino Iron Pty Ltd v Mineralogy Pty Ltd (2019) 55 WAR 89, 133 [198] per Buss P, Murphy and Beech JJA (Sino Iron).
(b) Although the matters entrusted to the expert for determination are to be ascertained by construction of the particular contract, it can usually be assumed that matters of an evaluative nature within the expertise of the expert, involving elements of judgment, opinion or discretion, are more likely to have been committed for final determination by the expert than questions of law, particularly where the expert has no legal qualifications or experience.
(c) A distinction is often drawn, in this respect, between an error in the exercise of a judgment or discretion, or the giving of an opinion, and an error in the assessment of an "objective fact". In AGL Victoria Pty Ltd v SPI Networks (Gas) Pty Ltd (formerly TXU Networks (Gas) Pty Ltd) [2006] VSCA 173 (AGL), Nettle JA (with whom Maxwell P and Bongiorno AJA agreed) explained as follows at paragraphs [53] and [54]:
Therein lies the distinction drawn in some of the authorities, and observed by the judge in this case, between an error in the exercise of a judgment, opinion or discretion entrusted to an expert, and an error which involves objective facts or a mere mechanical or arithmetical exercise. Subject to the contract in question, it is easier to suppose that parties to a contract contemplate that an error of the former kind be beyond the realm of review than it is to think that they intend to be fixed with errors of objective fact or in processes of mechanical calculation.
… The question in each case is what the parties should be presumed to have intended, and that is to be determined objectively from the terms of the contract, bearing in mind the context in which it was created.
(d) That is not to say, however, that questions of mixed fact and law, or questions of pure law, cannot be left to the determination of an expert: Australian Vintage Ltd v Belvino Investments No 2 Pty Ltd (2015) 90 NSWLR 367, 385 [76] per Bathurst CJ (with whom Beazley P and McColl JA agreed) (Australian Vintage).
(e) There will be cases where, in order to perform the agreed task, the expert will be required to consider the construction of a contract, but this does not necessarily mean that the parties are bound by the expert's interpretation. The fact that an exercise of judgment is involved in resolving a question of interpretation does not mean that "the ascertainment of that meaning was necessarily left to the expert, such that the expert's determination was immune from review by the Court": Australian Vintage at 385 - 386 [78].
77 This final principle assumes a degree of importance in the present case, as a key point of contention between the parties concerned the extent to which they will be bound by Mr Peisley's construction of the expression "gross profit" in cl 3.5(a) of the BSA if, as IonMy contended, that construction was erroneous. The proper approach to a scenario of this kind was addressed in the unanimous joint judgment of Buss P, Murphy and Beech JJA in Sino Iron, where their Honours stated the following at 133 - 134 [199] (with footnotes omitted):
Matters of mixed law and fact, requiring both the construction of a term (a question of law) and the application of the term to the facts (a question of fact) may be committed to expert determination. Where the expert is contractually required to determine specified facts, but the process necessarily involves an intermediate conclusion on a point which is properly regarded as a question of law, in deciding whether the expert has contractual authority to determine both the intermediate point of law and the ultimate questions of fact, the court may have regard to (1) whether the contract directs attention to expert determination of the ultimate question of fact (only), and (2) whether the intermediate point of law falls within the expertise of the expert.
78 Their Honours proceeded to discuss the English case of Mercury Communications Ltd v Director General of Telecommunications [1996] 1 WLR 48 (Mercury), which concerned a similar point. In that case, British Telecommunications plc (BT) had been granted a licence to run a telecommunication system. Condition 13 of the licence required BT to enter into an agreement with any person (described as "the operator") who was licensed to run a connectable system, if the operator required it to do so. If BT failed to enter into an agreement as required by the operator, then paragraph 13.5 of condition 13 provided, relevantly, that the Director General of Telecommunications (the Director):
… shall, on the application of the operator or the licensee, determine the permitted terms and conditions for the purpose of that agreement which have not been agreed between the Licensee and the Operator being terms and conditions relating to the matters mentioned in paragraph 13.4 which appear to the Director reasonably necessary (but no more than reasonably necessary) to secure (a) that the operator pays to the licensee the cost of anything done pursuant to or in connection with the agreement including fully allocated costs attributable to the services to be provided and taking into account relevant overheads and a reasonable rate of return on attributable assets …
79 A licence was in due course granted to Mercury Communications Ltd (Mercury), which then entered into an agreement with BT. Clause 29 of the agreement between them contained a review mechanism which provided, amongst other things, that the parties could request the Director to determine whether he was satisfied that there had been a material change in circumstances since the agreement was made and, if so, to determine whether the agreement should be amended in accordance with the criteria laid down in condition 13 of the licence.
80 After the passage of some years, the parties jointly referred to the Director, under clause 29, the question of the amounts to be charged for connection and the conveyance of calls under a possible replacement agreement between them. After the Director's determination was issued, Mercury contended that the Director had misinterpreted the phrases in condition 13 "fully allocated costs attributable to the services to be provided" and "relevant overheads".
81 The House of Lords held that the determination was open to challenge. Lord Slynn, with whom the other Law Lords agreed, identified the limits of the powers of the Director at 58 - 59 as follows:
What has to be done in the present case under condition 13, as incorporated in cl. 29 of the agreement, depends upon the proper interpretation of the words 'fully allocated costs' which the respondents agree raises a question of construction and therefore of law, and 'relevant overheads' which may raise analogous questions. If the director general misinterprets these phrases and makes a determination on the basis of an incorrect interpretation, he does not do what he was asked to do. If he interprets the words correctly then the application of those words to the facts may in the absence of fraud be beyond challenge. In my view when the parties agreed in clause 29.5 that the Director's determination should be limited to such matters as the Director would have power to determine under condition 13 of the B.T. licence and that the principles to be applied by him should be "those set out in those conditions" they intended him to deal with such matters and such principles as correctly interpreted. They did not intend him simply to apply such meaning as he himself thought they should bear. His interpretation could therefore be reviewed by the court. There is no provision expressly or impliedly that these matters were remitted exclusively to the director general, even though in order to carry out his task he must be obliged to interpret them in the first place for himself. Nor is there any provision excluding altogether the intervention of the court. On the contrary cl. 29.5 contemplates that the determination shall be implemented 'not being the subject of any appeal or proceedings'. In my opinion, subject to the other points raised, the issues of construction are ones which are not removed from the court's jurisdiction by the agreement of the parties.
82 It is useful to contrast that decision with two others.
83 First, in Jones v Sherwood Computer Services plc [1992] 1 WLR 277 (Jones), the defendant company agreed to purchase the plaintiffs' shares in a certain company, Corporate Technology Group plc, with the consideration to include the issue to the plaintiffs of a number of new shares in the defendant. The consideration was to be calculated by reference to the amount of "sales" of products sold by subsidiaries of Corporate Technology Group plc in a particular period. It was further provided that a statement of the amount of sales would be reviewed by firms of accountants representing each of the parties and, if those firms were unable to agree to approve the statement, the matter was to be referred to independent accountants acting as experts.
84 The firms representing the parties (referred to as "Peats" and "Deloittes") were ultimately unable to agree whether two categories of transactions were "sales". The matter was referred to independent accountants (referred to as "Coopers") who published a statement, without accompanying reasons, in which they determined an amount that was the same as that calculated by the defendant's accountants. The plaintiffs contended that they were entitled to call on the Court to determine whether or not the independent accountants had made mistakes, which they contended were mistakes of law or of mixed law and fact.
85 The Court of Appeal rejected this contention. Lord Justice Dillon, with whom Balcombe LJ agreed, stated the following at 287 - 288:
… Coopers have done precisely what they were asked to do. They were asked to consider only the points on which Peats and Deloittes were not in agreement, to decide whether the two classes of disputed transactions were or were not to be included in the total of "sales" as defined in appendix I, and to determine the amount of sales accordingly; that is what they have done. Under paragraph 7 of appendix I, a decision of the accountants under paragraph 3, if the accountants are in agreement, is to be as conclusive, final and binding as the decision of the expert if the accountants disagree with each other.
…
If the parties to an agreement have referred a matter which is within the expertise of the accountancy profession to accountants to determine, and have agreed that the determination of the accountants is to be conclusive, final and binding for all purposes, and the chosen accountants have made their determination, it does not seem appropriate that the court should rush in to substitute its own opinion, with the assistance of further accountants' evidence, for the determination of the chosen accountants. When the parties provided in appendix I to the sale agreement for a third firm of accountants - in the event, Coopers - to act as the expert in the event of disagreement between Peats and Deloittes, they cannot have had in mind merely disagreements between Peats and Deloittes on simple arithmetic - the adding up of the figures of the sales.
86 Secondly, in John Nelson Developments Pty Ltd v Focus National Developments Pty Ltd [2010] NSWSC 150 (John Nelson Developments), Ward J dealt with a dispute between two parties to a failed property joint venture, in the course of which the parties had invoked the dispute resolution provisions of their joint venture agreement (the JVA) on multiple occasions. Relevantly, on the first of these occasions, the parties relied upon cl 15.3.1 of the JVA, which provided:
[A]ny dispute relating to legal issues will be determined by [a] practising Barrister or Solicitor selected by the parties or if they cannot agree, then nominated by the President of the Law Society of NSW
87 The President of the Law Society ultimately nominated a Mr Molloy to determine the relevant question raised by the parties, which was essentially one of construction of certain provisions of the JVA. That question was duly determined. The defendant challenged the determination on multiple grounds, including on the basis of its correctness as a matter of law. Her Honour dismissed this challenge, explaining the outcome as follows at paragraphs [229], [230] and [232]:
[229] Reliance was placed by [the defendant] on what was said in Mercury … at 58, namely that if there is an error on the question of the construction of the relevant agreement and the expert makes a determination on the basis of an incorrect interpretation, then the expert does not do what he or she was asked to do. There, however, the issue for determination was not the very issue in respect of which the error of law was said to have been made.
[230] Here, Mr Molloy was asked, as a legal expert, to construe certain clauses of the JVA. If he made an error of law in that regard (by disregarding words or by misconstruing phrases in the agreement as is submitted), this surely is an error of judgment of the kind of which the parties should be taken to have assumed the risk. His skill and judgment in construing provisions of a contract are the very matters on which the parties have placed reliance and, if he has erred in that regard, that is a risk the parties must be taken to have accepted. Therefore, I do not consider the reasoning in Mercury to be of assistance.
…
[232] Here, what Mr Molloy was asked to do was to construe various clauses of the JVA. He did so. If he made a mistake in the construction of the contract (by applying the wrong legal principles or by placing too little or too much weight on the wording of particular clauses) it is nevertheless hard to see that this renders his determination something beyond the realm of contractual contemplation, (as opposed, for example, to the situation where he might have had regard to, and construed, the wrong clauses of the contract or a superseded version of the contract).
88 As these authorities make clear, although the principles as to the justiciability of an expert's determination can readily be articulated, albeit with some degree of generality, the outcome in any particular case will depend heavily upon the specific terms of the agreement between the parties, the question that has been referred to the expert, and the expert's qualifications to answer that question.