EXTRA DIVISION, INNER HOUSE, COURT OF SESSION
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Lady PatonLord BracadaleLord Glennie
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Defenders and Reclaimers: Primrose QC; C Smith; HBM Sayers
29 May 2013
Introduction
[1] On 23
October 2008 the pursuer sustained a very serious head injury resulting in an
incomplete tetraplegia when he fell from the first level of a scaffold to the
ground. Damages, on full liability, were agreed at £1,869,000. The Lord
Ordinary (Lady Dorrian) found the defenders liable and assessed the degree
of contributory negligence on the part of the pursuer as 20%. In this
reclaiming motion the defenders challenge the Lord Ordinary's assessment of the
appropriate measure of contributory negligence.
The findings of the Lord Ordinary
[2] At the
time of the accident the pursuer was working as a sub-contracted roofer and
slater under the Construction Industry Scheme whereby income tax of about 20%
was deducted by the main contractor. The pursuer was paid weekly, on an hourly
basis for a 39 hour week. The pursuer was the foreman of a squad consisting of
himself, Derek Porter and his son Ronald Hill jr. The pursuer had worked
with Mr Porter for about 15 years and with Ronald Hill jr for about
10 years. Prior to the date of the accident the squad had been doing work
for the defenders for a number of months. The Lord Ordinary described the
working arrangements between the defenders and the pursuer's squad as follows:
"The defenders' contracts manager, Mr Stephen McDonald, engaged them to carry out work for the defenders. He was responsible for obtaining and tendering for work on behalf of the defenders. Once the contracts had been secured, it was his decision who would work on any given site. He was responsible for arranging the scaffolding on site which was erected by scaffolders employed by Norside. It was left to the scaffolders to decide what sort of access to provide. Mr McDonald would decide where the pursuer's squad was to work and what the job was to consist of. He could direct them to a job, or take them off a job and transfer them to another job. Norside provided the squad with a van and paid for the diesel. They supplied all necessary materials, including roofing materials and power tools, for the job in hand. The only tools provided by the squad were their own hand tools. Insurance was arranged by Norside".
[3] The
accident occurred when the pursuer's squad were engaged in stripping and retiling
the roof of premises at Main Street, Coatbridge. In accordance with the
working arrangements described by the Lord Ordinary, prior to the work
commencing scaffolders employed by Norside had erected a scaffold to provide
access to the roof. While there was a fixed ladder from the first level of the
scaffold to the roof, no fixed ladder was put in place for access from the
ground to the first level. The evidence indicated that the reason for this was
to prevent unauthorised access to the scaffold by children and others. After
the accident the Health and Safety Executive insisted on a fixed ladder being
erected through the middle of the scaffold with a fence and gate system on the
ground around it to prevent such unauthorised access. A system of that type
had been in use at other Norside sites.
[4] When the
pursuer and his squad started work no ladder of any kind had been provided for
access to the first level of the scaffold. This meant that initially the men
had to climb the scaffolding poles using the lugs as footholds.
[5] There were
certain other defects which gave the pursuer concerns about the safety of the
public. There was no mesh brick guard at roof height and no fan lift at the
first level. The latter is an upwardly angled platform extending outwards
along the length of the first level of scaffolding. Both it and the brick
guard are designed to prevent items such as slates falling from the roof and
injuring passers-by. It appeared on the evidence that while the pursuer and
his squad did initially work with these defects unresolved, they complained
about them. At some point a brick guard and a fan lift were fitted.
[6] In
addition, for access to the first level of the scaffold the defenders at some
point provided an aluminium ladder which was in generally poor condition. It
had once formed part of an extension ladder; one of the rubber stops was
missing; rungs were damaged and the stiles moved in and out. The Lord Ordinary
found that when the ladder was provided no instructions were given as to how it
should be used to gain access to the scaffold. The men devised their own
method of using the ladder as follows:
"The ladder would be stored flat on the first level of the scaffold; when the men arrived in the morning, one of them, usually Mr Hill jr, would climb the scaffold and lower the ladder; he would hold it in place from the top while the other two men climbed it; the ladder would then be placed flat on the scaffold again for storage".
Because of the way in which the scaffold was constructed it was necessary to use the ladder at the side of the scaffold thereby gaining access to the right hand edge of the first level platform. There was a crossbar at chest height which required to be negotiated for access to the platform.
[7] Evidence was
led before the Lord Ordinary as to the practice, when the ladder was in use, of
tying it to the scaffold in order to secure it and prevent it from slipping.
The Lord Ordinary summarised the evidence as follows:
"The pursuer said that they used a piece of blue nylon rope which they had in the back of the van to tie the ladder to the scaffold and left the rope beside the ladder, looped round the scaffold when the ladder was lying flat on the platform. He maintained that they always tied the ladder when it was in use, but it is clear from the evidence of Mr. Hill jr and Mr. Porter that this was not the case. Mr Porter said that they would not always tie the ladder to the scaffold for reasons of quickness, and when ascending together would rely on the system where one would climb the scaffold then hold the ladder for the others, reversing the process when descending. Mr. Porter was aware of the pursuer using the ladder without it being tied off but this was in the context of the men using the ladder at the same time: he was not asked generally whether there were occasions when the pursuer would have used the ladder alone, apart from this incident when he went to check the supplies. The pursuer was asked if he had ever gone down the ladder on his own, in the absence of the others. Initially he said yes but then he said that he was struggling to remember having done so, although obviously he did so [on] the day of his accident. Mr. Hill jr, when asked in chief if they would ever use anything to tie the ladder said "now and again, at the start I am sure we used a bit of blue nylon rope". It wasn't in use every time but when it was used it was tied onto the top rung of the ladder and attached to a cross member of the scaffolding. Mr. Hill jr said that if he was on his own the ladder would probably not be tied every time; "sometimes you just do things". However he added that in general they would only climb the ladder in the morning, for a break and then at night, when of course they would be together, unless there was a delivery or they needed a lavatory break. His position basically was that generally, whenever he used the ladder, it would either be held or tied, but it would be tied only about 50% of the time. After the accident the piece of blue nylon rope referred to was found at the foot of the scaffold at the foot of one of the innermost uprights and about 3 yds from the right hand edge of the scaffolding. The evidence was that it was a wet and windy day. There was no lip at the right side of the scaffold to stop items falling off."
[8] The
accident occurred when pursuer went down on his own to deal with a delivery of
materials; the other members of the squad remained on the roof. While
descending the ladder the pursuer fell and sustained serious injury. Mr.
Adrian Timson, a construction inspector with Health and Safety Executive, who
visited the site after the accident, concluded that the pursuer fell when the
ladder, which had not been secured to prevent movement, slipped beneath him
when the guiderails were in contact with the wet sloping pavement. The Lord
Ordinary recorded that, as a result of his injuries, the pursuer had no
recollection of the accident. As to whether the ladder was tied to the
scaffold in the morning of the accident when the squad climbed to the first
level, Mr Porter did not think that it had been, while Mr. Hill jr could
not remember.
[9] It was a
matter of concession before the Lord Ordinary that the defenders were in breach
of certain statutory duties. The Lord Ordinary was satisfied that they were in
breach of a number of regulations under the Work at Height
Regulations 2005 (the 2005 Regulations) and the Provision and Use of Work
Equipment Regulations 1998 (the 1998 Regulations) and that these breaches caused
the pursuer's accident. In particular, under the 2005 Regulations they were in
breach of the following regulations:
[10] In addition,
the Lord Ordinary found the defenders to be in breach of regulation 20 of
the 1998 Regulations which requires that work equipment or any part of work
equipment is stabilised by clamping or otherwise where necessary for purposes
of health or safety.
[11] The Lord
Ordinary found it proved that the defenders had control of the scaffolding, "in
a way and to an extent that the pursuer did not". At paragraph [23] she went
on to say:
"The scaffold was erected on their instructions and by their employees. Fixed ladder access through the middle of the scaffold platform from the ground to the first floor is quite obviously a method of providing a secure access for workmen, and was indeed in use at the time on other Norside sites, yet it was not provided at this site. It seems that the reason was that there were concerns about possible unauthorised access to the scaffolding. Such concerns could easily have been addressed in a way which was consistent with fixed ladder access as can be seen by the measures put in place after the pursuer's accident. What was done then was safe and practicable and could easily have been done prior to the pursuer's accident had thought been given to the matter at the time of planning for the job. The issue of security of the site is hardly a one-off matter. The defenders could easily have devised a proper system providing safe access to the site but protecting the security of it, had they carried out a risk assessment of the type Mr. Sproule carried out for them in relation to other sites."
[12] The basis
for a finding by the Lord Ordinary of contributory negligence on the part of
the pursuer lay in the pursuer's failure to tie the ladder to the scaffold
before descending the ladder alone. At paragraphs [28] - [29] she summarised
her approach to the question of contributory negligence:
"...Although the evidence was that when the men were using the ladder together they did not always tie it off, relying sometimes on it being footed or held by each other after Mr. Hill jr had climbed the scaffold, there is no evidence that the pursuer habitually used the ladder on his own without tying it off. That he did so on the day in question is without doubt: why he did so will no doubt remain a mystery; but the evidence available to me is such that I am unable to assess that failure on his part as more than inadvertence or inattention.
[29] This is an important matter when
considering the relative blameworthiness of the pursuer and the defenders. For
reasons relating to the much greater degree of control which they had over the
site, and in particular, the scaffolding, all as explained above I consider
that the blameworthiness of the defenders is of a very different degree to that
of the pursuer. The fault of the defenders is not coextensive with that of the
pursuer; it goes beyond, and is independent of it. The pursuer quite simply
should not have been put in the position he was by the defenders. Inattention
on the part of a workman is precisely one of the risks which the statutory duty
is there to guard against."
[13] In
cross-examination of the witnesses led on behalf of the pursuer, Mr Hanretty
QC, who appeared as senior counsel for the defenders before the Lord Ordinary,
canvassed an alternative method of using the ladder which, he suggested, would
have been open to the pursuer and his squad to select. This came to be known
as the "van" system. Essentially, this would have involved storing the ladder
on the roof rack of the van each night and bringing it to the site each
morning. This approach would obviate the need for one member of the squad to
climb the scaffold each morning. The Lord Ordinary rejected the proposition
that the van system would have had any significant advantage over the system
which the pursuer and his squad were driven to adopt:
"[25] It was in these circumstances that the men were driven to devise an ad hoc system of their own. As to the "van" system there was no evidence that such a "system" was used generally in the construction industry; and there was no evidence that it had ever been used by Norside, instructed or even suggested by them to workers such as the pursuer. To the contrary, the evidence of the pursuer, which I accept, was that the method of access which his squad put in place was one which he had encountered previously on Norside sites where there had been similar concerns about unauthorised access. In any event, the "van" system itself had defects: for example, as the start and end of the day the only method of securing the ladder would have been footing it, a practice described by Mr. Tinson as "the last resort". Moreover, the access would continue to be at one edge of the first floor platform, rather than the middle; and would still require negotiation of the chest high end rail. Against the failings of the defenders, who gave no thought at all to providing a safe means of access to the scaffolding, the pursuer's squad can, in my view, hardly be criticised for settling for one system with defects rather than another one with defects. "
The submissions on behalf of the defenders
[14] Although
the grounds of appeal were extensive, and Mr Primrose QC, who appeared on
behalf of the defenders before us, developed his submissions in a number of
chapters, it is convenient to consider the attack mounted on the assessment by
the Lord Ordinary of contributory negligence under three heads. First, it was
contended that the Lord Ordinary had failed properly to recognise and take
account of the co-extensive nature of the duties on the pursuer and the
defenders under the regulations. This was exacerbated by her failure to have
proper regard to the experience of the pursuer. Secondly, the treatment by the
Lord Ordinary of the evidence as to whether the ladder used by the pursuer and
his squad was habitually tied off was open to criticism. This had led her
wrongly to conclude that the pursuer's failure to tie off the ladder on the day
of the accident could not be assessed as more than inadvertence or
inattention. Thirdly, the Lord Ordinary had failed to take proper account of the
alternative system of using the available ladder, namely, the "van" system,
which had been advanced at the proof.
[15] Mr Primrose
submitted that the Lord Ordinary had failed to recognise that because of the
degree of control which the pursuer had over the use of the ladder and the
system of access, the same statutory duties were incumbent on both the
defenders and the pursuer. Both sets of regulations applied to self-employed
persons and persons who had control of work. Accordingly, the statutory duties
as between the pursuer and the defenders were co-extensive. The pursuer, being
in control of the ladder and the men in his squad, and having day to day
control of the scaffold, could have taken steps to get another ladder. He could
have demanded that a fixed ladder be put in place. He ought to bear a
substantial share of responsibility for what happened.
[16] Further, in
this context, the Lord Ordinary failed adequately to take into account the
evidence as to the pursuer's knowledge, experience and training in the safe use
of ladders. He had forty years' experience; he was a foreman; and he had
training in the use of ladders. Given that experience, he could have called a
halt to the work had he considered it dangerous. When he had complained about
defects in the scaffolding these had been rectified. The Lord Ordinary had
failed to recognise the extent and degree of control by the pursuer, the extent
of his experience and the fact that he was just as subject to the terms of the
regulations as were the defenders. Because of her failure to take proper
account of these points the Lord Ordinary had not made a sufficient finding of
contributory negligence.
[17] Mr Primrose
submitted that the Lord Ordinary's treatment of the question as to whether the
pursuer habitually failed to tie off the ladder was flawed. There was no proper
basis in the evidence for the conclusions at which she arrived in paragraph [28]
of her opinion (quoted above). Under reference to the transcript of evidence
Mr Primrose drew our attention to certain passages in the evidence of each of the
pursuer, Mr Porter, Mr Hill jr and Mr Tinson of the Health and Safety
Executive. Mr Primrose submitted that a review of that evidence showed that on
occasions other than the occasion of the accident the pursuer had used the
ladder without it being tied. From that it could be concluded that the failure
to use it on the day of the accident was not simply inadvertence or inattention.
[18] Further, in
support of the contention that the failure by the pursuer to tie off the ladder
on the day of the accident was more than inadvertence, Mr Primrose drew
attention to the evidence of Mr Porter that on the day of the accident the
ladder had been placed on the first level of the scaffold after the members of
the squad had reached that level. When the pursuer came back down he would have
required physically to put the ladder in position before descending. That
requirement in itself would make it much less likely that the failure to tie
off was no more than a moment of inadvertence or inattention. It would be
easier to explain as inadvertence if the ladder had already been standing in
position.
[19] In relation
to the Lord Ordinary's treatment of the reliability of the pursuer Mr Primrose
submitted that the Lord Ordinary had not dealt with the conflict between the
pursuer's position in relation to the tying off of the ladder as contrasted
with the positions of Mr Porter and Mr Hill jr. She was in error in her
assessment at paragraph [27] of her opinion.
[20] Mr Primrose
submitted that the Lord Ordinary had misunderstood the evidence relating to the
alternative "van" system and had failed to give proper weight to the advantages
of that system. This was a safer system which could have been adopted. It was
a more formal system which would require each member of the squad to
concentrate on the need to foot and tie the ladder when in use. Mr Primrose
submitted that a proper understanding of the evidence of Mr Tinson's evidence
indicated that this system would have satisfied him.
The submissions on behalf of the pursuer
[21] Mr Di Rollo
QC, who appeared on behalf of the pursuer before us (but not before the Lord
Ordinary), submitted that the evidence before the Lord Ordinary demonstrated
that the defenders had complete control over access and egress from the place
of work. In terms of regulation 2(1) of the 2005 Regulations "work at height"
included "obtaining access to or egress from such place while at work". The
plain fact was that it was for the defenders to provide a suitable means of
access to and egress from the place of work. The pursuer had no control over
that; he had to use whatever arrangement was provided. The finding of the Lord
Ordinary was that the system could easily have been changed by the provision of
a suitable fixed ladder and if that had been done the accident would not have
happened. Only the defenders had control of the site in order to be able to install
a fixed ladder.
[22] The issue
for the Lord Ordinary was whether the pursuer on the occasion of the accident,
by failing to tie the ladder when he descended it, was contributorily negligent
and, if so, to what extent. The cross-examination of the pursuer had been very
brief. The only basis for contributory negligence put to him related to the failure
to tie off the ladder. It was not put to him that he could have demanded that
a fixed ladder be installed or that he could have refused to continue working
until that was done. The Lord Ordinary was entitled on the evidence before her
to conclude that the evidence did not indicate that the pursuer habitually,
when using the ladder alone, failed to tie it off. Mr Di Rollo submitted that
even if there was more than inadvertence or inattention it did not make any
difference in this case. In the light of the finding of the Lord Ordinary in
paragraph [28] that the pursuer was required repeatedly to use a defective
system which could easily have been replaced with a ladder and locked gate, a
relatively modest element of contributory negligence was appropriate.
[23] As to the
alternative "van" system, Mr Di Rollo submitted that the pursuer should never
have been put in the position of having to devise a system of gaining access
and egress using a ladder in the first place. It was not for the pursuer to
devise a system of access. It was for the defenders to do that. The Lord
Ordinary had been entitled on the evidence before her to conclude as she did in
relation to the "van" system.
Discussion
[24] It is
important at the outset of our consideration of the assessment of contributory
negligence made by the Lord Ordinary to bear in mind that the question is not
what this court would have considered to be an appropriate level of
contributory negligence. The court will interfere in such an assessment only in
exceptional circumstances and where the Lord Ordinary has manifestly and to a
substantial degree gone wrong (McCusker v Saveheat Cavity Wall
Insulation Ltd 1987 SLT 24 ; Porter v Strathclyde Regional
Council 1991 SLT 446).
[25] In our
opinion the Lord Ordinary correctly approached the question of contributory
negligence. She had regard to the relative blameworthiness and "causal potency"
of the acts of the pursuer as against those of the defenders which founded
their liability to the pursuer (see King J in Tafa v Matsim
Properties Ltd [2011] EWHC 1302 at para 166, to which the Lord
Ordinary was referred). It is clear that she was conscious that under the
regulations the pursuer did owe duties to himself and to the members of his
squad.
[26] On the
basis of the evidence as to (a) the working arrangements between the pursuer
and the defenders; (b) the arrangements for the erection of, and access to, the
scaffold; and (c) the practice at other sites belonging to the defenders, the Lord Ordinary
was, in our opinion, entitled to be satisfied that the defenders had control of
the site, and in particular had control of the scaffolding, in a way and to an
extent that the pursuer did not. As she noted in paragraph [23], "The scaffold
was erected on their instructions and by their employees".
[27] The
defenders were in breach of their statutory duty by not providing a fixed and
secure means of access to the first level of the scaffold. As the Lord
Ordinary noted, this was an arrangement that was in place on other sites
operated by the defenders. It could easily have been put in place when the
scaffolding was erected. Precisely that arrangement was put in place after the
pursuer's accident.
[28] The Lord
Ordinary recognised that the pursuer in descending the ladder alone without
tying it off was negligent. We note that this was the only basis on which
contributory negligence was explored before the Lord Ordinary. It was
suggested before us that the pursuer could have demanded that a fixed ladder be
put in place. We note that that proposition was never canvassed with the
pursuer in cross-examination. As Mr Di Rollo pointed out, the
cross-examination of the pursuer was brief. The pursuer was asked questions
about his business arrangements. He was asked about his experience and
training. It was taken from him that he was the foreman and in charge of the
men working with him: he was in a position to instruct them as to how to go
about their job; and he knew that he should be looking after the members of his
squad. He was asked about the tying off of the ladder. It was never put to him
that he could have stopped work and demanded the installation of a fixed
ladder. In any event, when on a previous occasion the pursuer had refused to
work in conditions which gave rise to safety concerns for him and his squad,
their wages were docked.
[29] As the Lord
Ordinary noted, the question as to whether the pursuer habitually failed to tie
off the ladder when using it on his own was important in assessing whether it
was demonstrated that his action in doing so on the occasion of the accident
was more than inadvertence or inattention. In the light of the submissions
advanced by Mr Primrose it is necessary to examine the evidence about tying the
ladder. In examination in chief, at page 23 of the transcript, the pursuer was
asked, "Did the three of you use any arrangement for securing the ladder into
place when you were using it?" Answer: "Yeah, we tied it with blue nylon rope."
Question: "And this blue nylon rope, where did you get that from?" Answer: "Out
the back of the van. I always had blue nylon rope in the back of the van." At
page 24 he said that the rope was usually kept beside the ladder. He was then
asked, "When you were working at Main Street, Coatbridge and you were using the
ladder, did you always tie it with the blue strap?" Answer: "Yes". At page
27-28 his position was that he could not really remember whether in the weeks
or days before the accident he had occasion to go up or down the ladder on his
own.
[30] In
cross-examination at page 36E the pursuer was asked by counsel for the
defenders, "Is her Ladyship to take it that the ladders were tied off with the
blue nylon rope ...on every occasion when you used the ladder prior to your
accident... Every other occasion, so far as you can recollect, the ladder was
tied off?" The pursuer replied, "Yeah". He was then asked, "All right, and it
would have been tied off because you knew that was the right thing to do?"
Answer: "Yes".
[31] In
cross-examination at pages 71-75 Mr Porter said that he knew that a ladder
should be tied off to stop it moving. He agreed that the pursuer was aware of
that. He was asked, "Did he insist that the ladder be tied off every day when
it was being used?" Answer: "No". Under reference to his statement, which he
adopted as the truth, he said "We did not always tie the ladder". By "we" he
meant the squad. He was then asked again whether he was aware of the pursuer
using the ladder when it was not tied off and he said, "...I suppose he did". He
was then asked, "When you said ....about 'for quickness' in terms of not tying
off the ladder, what did you mean by that?" Answer: "Well, it gave quick access
to the first level of the building."
[32] In
cross-examination at page 107-108 Mr Hill jr was asked, "Had your dad been in
the habit of not tying off this ladder when he used it on the site?" He replied
"I don't know. I wasn't there every single time...". He was then asked, "Were you
aware of occasions when your father didn't tie off the ladder?" And he replied
"Yeah". When he was asked how often that would happen he said, "I cannae
remember how often it was because sometimes he would have tied it and sometimes
he wouldn't". He went on to say that maybe 50% of the time they used the ladder
when it was not tied off with the rope. When he was asked, "You knew it should
be tied off?" he replied, "But it was to get footed if it wasnae tied". He was
then asked, "How many times did you use it and it wasn't footed and it wasn't
tied?" to which he replied, "It would always be footed or tied if I was using
it. If I was going up myself, I would tie it. If I was going up, which usually
was the case, and my dad had to get it footed or held at the top. Somebody
would be at the top."
[33] Mr Tinson
at page 205 stated that his understanding was that sometimes the ladder was
tied and sometimes it was not.
[34] Having carefully
considered these passages of evidence to which Mr Primrose drew our
attention, we agree with the interpretation of that evidence made by the Lord
Ordinary. She recognised that the pursuer was wrong in his evidence that the
ladder was always tied off. We agree with the Lord Ordinary's analysis of the
evidence of Mr Porter and Mr Hill jr. Their evidence about the occasions on
which the ladder was used without being tied off was given in the context of
the members of the squad using the ladder together. In our opinion the Lord
Ordinary was entitled to conclude as she did in paragraph [28] that there was
no evidence that the pursuer habitually used the ladder on his own without
tying it off.
[35] In
addition, there was nothing in the evidence to indicate that the pursuer had
been careless on previous occasions. The history indicated that he was a
careful man.
[36] As to the
"van" system, we are unable to see what this approach would have achieved apart
from obviating the requirement for one member of the squad to climb the
scaffold each morning. That had no bearing of the pursuer's accident. As Mr Di Rollo
pointed out, it was not for the pursuer to devise a system of access; it was
for the defenders to do that. The only advantage claimed for the "van" system
by Mr Primrose was that it would have focussed minds. In our opinion the Lord Ordinary
was entitled on the evidence before her to conclude as she did in relation to
the "van" system.
[37] In all these
circumstances it seems to us that on the evidence before her the Lord Ordinary was
entitled to take the view that she was unable to find that the failure on the
part of the pursuer was more than inadvertence or inattention. We are of the
opinion that in the light of that conclusion the assessment of contributory
negligence made by the Lord Ordinary was appropriate (Toole v Bolton
Metropolitan Borough Council 2002 WL 498813; Sherlock v Chester
City Council [2004] EWCA Civ 201; Neil v East Ayrshire Council 2005
Rep LR 18; McLachlan v Early Learning Centre [2011] CSOH 25).
Decision
[38] For the
reasons set out above we refuse the reclaiming motion and reserve meantime the
question of expenses.