The contemporary dialogue surrounding statutory interpretation in Australian legal education has tended to focus on the adjudicative experience. Much of the literature on the discrete subject of statutory interpretation is written by experts in public law and by judges. There is however a much wider experience of working with statutes, including the daily practice of transactional lawyers and the application of statutory provisions in contexts that are unlikely ever to see judicial interpretation. In the latter case, it is often by parliamentary design that rights, obligations, and processes for dispute resolution are provided for explicitly outside the context of courts of record. Usually the purpose of such statutes is to promote access to justice. Legislation of this type is therefore a rich context for student learning about the need for and processes of access to justice. Because clues to interpretation, to resolution of ambiguity, or to the meaning of terms cannot be found in the courts, the question for the legal educator becomes how best to teach the reading of a statute outside express judicial guidance through precedent. This paper uses the example of property law to illustrate a statutory interpretation framework within which to use statutes to reveal issues of power, and to understand the operation of legislative responses that promote access to justice.
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Teaching Social Justice through Statutory Interpretation
1. Statutory Interpretation and
Access to Justice: Text,
Context and Purpose
Kathrine.galloway@jcu.edu.au
ALTA Conference
La Trobe Law School, Melbourne
17-18 July 2015
2. It is the function of the court alone authoritatively
to declare the legal meaning of an
enactment…[In the meantime all that exists is]
non-authoritative, non-judicial conjectures
(usually by practising or academic lawyers) as to
what [the enactment] amounts to.
Francis Bennion, Understanding Common Law Legislation: Drafting and
Interpretation (Oxford University Press, 2001), 17, 19.
3. Transactional lawyers must
make meaning of statutes daily
Courts deal with
statutes up here
Transactional lawyers
deal with statutes down
here
4. Thinking, rethinking about
statutes in land law
Challenge the
emphasis in property
law teaching
Embed iteration of
working with statutes
in property law
teaching
Showcase how
statutes promote
access to justice
6. ‘While much of Australian real property
law has been reshaped by legislation,
little attention has been given to the
principles underlying much of the
legislative reform. An understanding of
real property law requires analysis not
just of leading cases, but also of detailed
legislation.’
Bradbrook et al, Australian Real Property Law (5th ed, 2011), 7
7. Learning property law tends to
be structured like this
Common
law
Statute
Sovereignty
Doctrine of
tenure
Doctrine of
estates
Legislation…
eg
8. Property law practice happens
like this
Instrument
Statute
Registry
Office
Manual
Case law
9. We revert to common law
The conclusion … seems to us to result from
a lawyer's inherent tendency to assimilate
such a right to some category known to
the common law… The question must be
judged having regard to rights and interests
created by the law of today, without, it
seems to me, trying to fit them into the law
of feudal tenures and estates.
Commissioner of Main Roads v North Shore Gas Co
Ltd (1967) 120 CLR 118, 127, 131
11. Teaching aim: integrate statutes
and instruments, informed by
common law, through authentic
tasks
12. This subject context
Iterative development:
working with statutes (2nd year)
Foundation
statutory
interpretation
In depth look at
principles; general
method;
interpretive criteria
13. Subject(s) content
Land law 1
Property
Land
Doctrines tenure & estates
Co-ownership
Priorities
Land law 2
Torrens
Mortgages
Leases
Easements, covenants
14. Subject approach: Broad statutory
framework [context]
Statutory land title regulation
Freehold
Property
Law Act
National
Credit
Code
Land Title
Act
(Torrens)
Community
Titles
Non-freehold land
Land Act
Retirement
Villages Act
Native Title
Act
Residential
tenancies
Trusts
Act
Mineral
Resources
Act
Water Act
Retail shop
leases
15. A journey through each statute
[purpose]
Version,
commence-
ment
Purpose,
objects
Structure
Geographical
extent
Persons and
things
covered
Adapted from Francis Bennion, Understanding
Common Law Legislation (Oxford, 2001), 184-5
16. Reading, interpreting particular
text S184(3) Land Title Act
…[indefeasibility]
subsections (1) and (2)
do not apply…if there
has been fraud by the
registered proprietor…
Bahr v Nicolay (No 2)
(1988) 164 CLR 604, 614
‘…actual fraud,
personal dishonesty or
moral turpitude lie at
the heart of the fraud
exception [to
indefeasibility]’
18. Towards an integrated
approach
Common
law terms
Statutory
regulation
Private
covenants
Tend to be
omitted in
teaching
Usually a starting
point
Tend to be considered
after common law
20. Reading the instrument of
mortgage (echoes approach to
statute)
Commence-
ment
Interest
secured
Structure of
instrument
Persons and
things covered
•Parties
•Respective
obligations
Does the
Property Law
Act apply?
How/why?
Who has the power, and where are the
protections: statute common law
21. Reading the instrument of lease
Commence-
ment; term
Premises leased
Structure of
instrument
Persons and
things covered
•Parties
•Respective
obligations
Does the
Property Law
Act apply?
How/why?
Who has the power, and where are the
protections: statute common law?
26. Identify statutory tools for social
justice
Self-
representation
Address specific
context
Equal access to
information
Establish
regulatory body
Alternative
dispute resolution
Establish tribunal
(now QCAT)
27. Read and make meaning of text:
‘intellectually manipulate the
relevant materials’
Covenant:
instrument
Property Law
Act
Residential
tenancies
legislation
Common law
Quiet
enjoyment
Short form
covenants,
Schedule 3
s183 Telex v Thomas
Cook
28. New context: retail shop leases
Retail Shop Leases Act
Economic
hardship
Small
business
Power
imbalance
29. Integrate unseen statute and
instrument
• Problem centered on the instrument
• Does the statute apply?
• Does the instrument comply?
• What are the consequences?
30.
31. Exercise requires students to
Establish how statutes
work together
Read, apply
subordinate legislation
Deal with uncertainty
Make meaning of
unseen provisions
Appreciate the effect
of power imbalance &
role of statute
32. More statutory tools for justice
Disclosure
requirements
Advice
requirements
(legal, financial)
Minimum standards
Unconscionability
provisions
Alternative dispute
resolution
Specialist tribunal
(now QCAT)
33. Case study
shows
Need to prioritise
statute law
Consistent, scaffolded
iteration of statute’s
context through
structure
Attention to text
through authentic
application
Social justice via
statute