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NSW Government Bulletin

28 November 2018

#Government

Christine Jones

Published by Christine Jones

NSW Government Bulletin

There’s a zeugma in my statute

In Olefines Pty Ltd v Valuer-General of New South Wales [2018] NSWCA 265, the NSW Court of Appeal (the Court) dismissed an appeal challenging the valuation of two parcels of land. The parties’ valuers had each employed a different valuation methodology, which arose from the complexity of section 6A of the Valuation of Land Act 1916 (NSW) (Valuation Act). In its decision the Court examined the construction of the section, including the impact of a zeugma in section 6A(2).

A zeugma is a language device where one word is used to modify two other words, albeit in different ways, such as in “She broke his car and his heart.”

How does the Court deal with a zeugma in a statutory interpretation context?

Valuation of Land Act 1916 (NSW) s 6A 

The Court recognised that the stark difference between the parties’ valuations was due to the complexity of subsections 6A(1) and 6A(2) of the Valuations Act, each of which points in different directions. The relevant subsections of section 6A of the Valuations Act reads as follows:

6A Land value

(1) The land value of land is the capital sum which the fee-simple of the land might be expected to realise if offered for sale on such reasonable terms and conditions as a bona-fide seller would require, assuming that the improvements, if any, thereon or appertaining thereto, other than land improvements, and made or acquired by the owner or the owner’s predecessor in title had not been made.

(2) Notwithstanding anything in subsection (1), in determining the land value of any land it shall be assumed that:

(a) the land may be used, or may continue to be used, for any purpose for which it was being used, or for which it could be used, at the date to which the valuation relates, and

(b) such improvements may be continued or made on the land as may be required in order to enable the land to continue to be so used,

but nothing in this subsection prevents regard being had, in determining that value, to any other purpose for which the land may be used on the assumption that the improvements, if any, other than land improvements, referred to in subsection (1) had not been made.

 *emphasis added to reflect the different typefaces

Close examination of s 6A

In determining the case, the Court closely examined the syntactic structure of s 6A and made the following observations:

  • the basic structure of s 6A is that land value is the price realised by a hypothetical sale on certain assumptions. Whilst the assumptions are complex, qualified and contingent, there is a single statutory valuation
  • subsection 6A(1) values the land as if improvements had not been made. Subsection 6A(2) values the land on the basis that certain improvements may be continued or made. In the event of conflict or inconsistency, subsection 6A(2) prevails
  • subsection 6A(2) provides mandatory assumptions to be made in paragraphs (a) and (b), both of which are closely linked
  • paragraph (a) requires assumptions to be made about the use of land and has disjunctive pairings: “may be used” or “may continue to be used” and “it was being used” and “for which it could be used”. The pairings have been italicised and underlined in the extract above for reference. Closely examining the structure of paragraph (a) emphasises the importance of the words “for any purpose” and reveals the use of a zeugma. In s 6A(2)(a), the words “for any purpose” only appear once, however the words relate to both disjunctive pairings. The Court held that in expanded form, section 6A(2)(a) would read:

    [it shall be assumed that]
    “the land may be used for any purpose for which it could be used.
    or
    the land may continue to be used for any purpose for which it was being used, at the date to which the valuation relates…”
  • the words “in order to enable the land to continue to be so used” found in paragraph (b) is a reference to the four paired actual or possible uses of land referenced in paragraph (a). Therefore paragraph (b) requires an assumption to be made about the improvements which are required in order to enable the land use, as assumed in paragraph (a), to continue
  • the Court acknowledged that subsection 6A(1) requires the unimproved value of the land to be calculated as if improvements had not been made. This may appear inconsistent with subsection 6A(2) which commands an assumption that the improvements will continue on the land. In resolving the inconsistency the Court held the improvements are assumed to be present merely for the purpose of permitted an unimproved land value to be calculated having regard to the purpose for which they were erected and for which they are required.

Decision

In interpreting the section, the Court acknowledged that the provision was drafted to avoid unnecessary repetition of words. The Court therefore recognised the use of a zeugma and will read the provisions as though in an expanded form. 

Editorial: Christine Jones & Lauren Stables

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In the media

Review of domestic violence and other homicide sentencing
The NSW Government has ordered an independent review of sentencing for murder and manslaughter offences, including those involving domestic and family violence. The Sentencing Council will examine how sentencing decisions affect families of homicide victims and the devastating impact of domestic violence on the community (23 November 2018).  More...

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Safe and fair forensic mental health system for victims
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New online system to take stress out of finding a Justice of the Peace (JP)
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In practice and courts

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High Court of Australia Bulletin [2018] HCAB 09 (19 November 2018)

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LCA: Australian Human Rights Commission National Inquiry into Sexual Harassment in Australian Workplaces
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Digital Transformation Strategy
The newly launched Digital Transformation Strategy aims to have all government services available digitally by 2025, along with a roadmap of key initiatives for the next two years. The strategy provides a direction for governments’ work on data and digital transformation and underpins the Commonwealth’s stated aim of remaining in the top three digital governments in the world by 2025 (21 November 2018).  More...

New South Wales

NCAT Annual Report 2017-2018
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ICAC: Prosecution briefs with the DPP and outcomes
Tables summarising information about briefs that are with the DPP, and prosecution outcomes. Last updated 23 November 2018

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The Operation Skyline hearing has been stood over to Friday 8 February 2019 at 10:00 am for further directions. Operation Skyline is an investigation into allegations concerning the Awabakal Local Aboriginal Land Council.  More...

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Updates to New South Wales Police Force website
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Published - articles, papers, reports

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Rosemaria Flaherty, Jenna Meiksans, Stewart McDougall, Fiona Arney: 15 November 2018
This project sought to understand the impact of this Child-At-Risk (CAR) electronic Medical Record (eMR) alert information sharing system on outcomes for women and children.  More...

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Cases

Banerjee v Commissioner of Police [2018] NSWCA 283
CONSTITUTIONAL LAW – inconsistency – Constitution, s 109 – circumstances in which operation of State law will be inconsistent with Commonwealth law – where provisions of Security Industry Act 1997 (NSW) and Security Industry Regulation 2016 (NSW), cl 13(3) mandated revocation of company’s security licence upon entering voluntary administration – State laws prevented company entering voluntary administration from carrying on primary business – whether operation of State laws inconsistent with Corporations Act 2001 (Cth), Pt 5.3A – whether State laws invalid to extent of inconsistency.
COMMERCIAL LAW – security industry – requirement that Commissioner of Police revoke master licence of corporation under administration – whether valid State law.

Saeed Dezfouli v NSW Police Force [2018] NSWCATAD 264
Administrative Law – Government Information – access application – redaction of names – personal information - whether public interest considerations against disclosure outweigh public interest considerations in favour of disclosure –whether risk of harm or serious harassment or serious intimidation if names disclosed.

Shop, Distributive & Allied Employees’ Association v Secretary, NSW Treasury [2018] NSWSC 1760
APPEALS – by leave on question of law – leave granted as questions of statutory interpretation arise – benefits of authoritative decision. STATUTORY INTERPRETATION – exemption order made under Shops and Industries Act 1962 (NSW) – construction of transitional provisions in Shop Trading Amendment Act 2009 (NSW).
STATUTORY INTERPRETATION – right conferred on representative of industrial organisation to apply for review to Civil and Administrative Tribunal – plain meaning of words exclude right of industrial organisation itself to apply.

Mulpha Australia Limited v Central Sydney Planning Committee [2018] NSWLEC 179
JUDICIAL REVIEW – integrated development – whether permissible for approval authority Heritage Council to provide comments, rather than general terms of approval, with respect to portion of development application – general terms of approval with respect to development outside curtilage of heritage item required where there is a relevant nexus – relevant nexus apparent from Heritage Council decision – misconstruction of statutory power – jurisdictional error established.
WORDS AND PHRASES – “land” – definition of land in s 57(1)(e) not restricted to curtilage of item or to lot on which item sits – to be determined on a case by case basis.
WORDS AND PHRASES – “in relation to” – protective purpose of the Heritage Act 1977 – interpretation promoting that purpose preferred to interpretation not promoting that purpose.

Olefines Pty Ltd v Valuer-General of New South Wales [2018] NSWCA 265
STATUTORY INTERPRETATION – primacy of text –structure of legislation – construction of provision containing zeugma – no wider context or extrinsic factors to be considered – Stevens v Kabushiki Kaisha Sony Computer Entertainment (2005) 224 CLR 193; [2005] HCA 58 applied VALUATION – land value.

Liang v University of Technology Sydney [2018] NSWSC 1740
ADMINISTRATIVE LAW – administrative tribunals – where plaintiff sought stay of proceedings before Appeal Panel of NCAT – no grounds for intervention of Supreme Court – stay refused.

Legislation

New South Wales

Regulations and other miscellaneous instruments

Parliamentary Remuneration Amendment (Deputy Leader of the Opposition) Regulation 2018 (2018-651) — published LW 21 November 2018

Bills passed by both Houses of Parliament – 16 November 2018
Crimes (Administration of Sentences) Legislation Amendment Bill 2018

Bills passed by both Houses of Parliament – 23 November

Bills assented to
Crimes (Administration of Sentences) Legislation Amendment Act 2018 No 74 — Assented to 22 November 2018
For the full text of Bills, and details on the passage of Bills

NSW Government Bulletin editor:
Christine Jones, Partner - Construction & Infrastructure (Dispute Resolution) 
T: +61 2 8083 0477 
E: christine.jones@holdingredlich.com

Other contacts:
Dispute Resolution, Inquiries and Administrative Law
Greg Wrobel, Partner 
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Bede Haines, Special Counsel 
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E: bede.haines@holdingredlich.com

Workplace Relations & Safety
Michael Selinger, Partner 
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Privacy & Data Protection
Lyn Nicholson, General Counsel 
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E: lyn.nicholson@holdingredlich.com

Planning, Property & Environment
Robina Kidd, Partner 
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Vanya Lozzi, Partner 
T: +61 2 8083 0462 
E: vanya.lozzi@holdingredlich.com

Cameron Sheather, Partner 
T: +61 2 8083 0461 
E: cameron.sheather@holdingredlich.com

Breellen Warry, Partner 
T: +61 2 8083 0420 
E: breellen.warry@holdingredlich.com

Lindsay McGregor, Partner
T: +61 2 8083 0459 
E: Lindsay.McGregor@holdingredlich.com

Alexander McNutt, Special Counsel 
T: +61 2 8083 0495 
E: Alexander.McNutt@holdingredlich.com

Peter Holt, Special Counsel 
T: +61 2 8083 0421 
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Construction and Infrastructure (Projects and Procurement)
Scott Alden, Partner 
T: +61 2 8083 0419 
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Disclaimer
The information in this publication is of a general nature and is not intended to address the circumstances of any particular individual or entity. Although we endeavour to provide accurate and timely information, we do not guarantee that the information in this publication is accurate at the date it is received or that it will continue to be accurate in the future. We are not responsible for the information of any source to which a link is provided or reference is made and exclude all liability in connection with use of these sources.

Christine Jones

Published by Christine Jones

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