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Minister of Public Works and Land Affairs v Group Five Building Ltd (1) (606/96) [1999] ZASCA 36 (28 May 1999)






Case No 606/96


IN THE SUPREME COURT OF APPEAL OF SOUTH AFRICA


In the matter between

THE MINISTER OF PUBLIC WORKS AND

LAND AFFAIRS APPELLANT

AND

GROUP FIVE BUILDING LIMITED RESPONDENT

BEFORE: HEFER, NIENABER, MARAIS, SCHUTZ AND PLEWMAN JJA

HEARD: 13 MAY 1999

DELIVERED: 28 MAY 1999

SCHUTZ JA


Building contract - nominated sub-contract works form part of works under main contract - main contractor responsible for such works being according to specification - commencement of prescription of claim for remedying defective work.
________________________________________________________________

J U D G M E N T


________________________________________________________________
SCHUTZ JA:
Some years ago the old Roeland Street gaol in Cape Town was converted into a State archive. The main contractor was the respondent Group Five Building Limited (“the contractor”). The government is represented in the appeal by the appellant, the Minister of Public Works and Land Affairs. I shall refer to the government as “the employer”. Because of the use to which the building was to be converted it was important that a proper fire-alarm system be installed. This work was to be done by a specialist nominated sub-contractor. The company ultimately nominated was KPL-ETSA (Pty) Limited (“the sub-contractor”). For ease of exposition I shall refer to these three persons using pronouns appropriate to natural persons.
Various disputes led to a trial between the employer and the contractor. The only dispute ventilated on appeal relates to a damages counterclaim brought by the employer against the contractor. It concerns the cost to the employer of putting right defective work done by the sub-contractor. Contrary to the specification, the field wiring had numerous joints when it should have been continuous, and certain conductors had differently coloured tracer strips. Van Zyl J in the Cape Provincial Division held that, although the sub-contract works formed part of the entire works which the contractor had to deliver to the employer, the contractor was not liable to the employer for the defective work, in that there was no duty upon the contractor to supply “technical supervision” of the sub-contractor’s work, as opposed to his acknowledged duty to co-ordinate the works and provide general supervision. Leave to appeal having been refused by Van Zyl J, it was subsequently granted on petition. Both in the trial and on appeal questions of quantum were left over.
The institution of the nominated sub-contract has long been known to our building trade and our law. Its first essential quality is that the employer reserves to himself the right to nominate as sub-contractors particular persons to perform specified parts of the overall works. A common reason is that he wishes to have control over the selection of the persons who will perform specialised and skilled work. But another reason, becoming increasingly common because of increasing specialisation and use of sub-contractors, is to obtain competitive tenders for sub-contracted works. A second essential feature is that the contractor is obliged to accept the nomination, subject to a limited but nonetheless important right of challenge. A third is that the contractor must enter into a sub-contract with the person nominated, usually one containing the same terms, particularly as to performance, as those contained in the main contract. A fourth is that there is no privity of contract between the employer and the sub-contractor. From this flows a fifth, that the employer compels performance of the sub-contract not directly, but through his remedies against the contractor under the main contract. A sixth is that in a bills of quantities contract a figure is inserted in the bills for the nominated sub-contract works which is called a provisional sum, provisional because when a payment certificate is prepared this sum is struck out and replaced by the contract price derived by multiplying the actual measured quantities by the appropriate unit rates in the bills. A common further feature is that the terms of the sub-contract are settled only after the main contract has been concluded. This description is a broad one, and, of course, its accuracy in a particular case depends upon the terms of the particular contract. The entire machinery, evolved over many years, is designed to avoid privity between the employer and the nominated sub-contractor, whilst retaining substantial control over the sub-contract works in the employer’s hands. Anyone who has had experience of the electrician driving a hole through the wall after the plasterer has completed his work, or the installer of the alarm lights putting nails into the handiwork of the waterproofer, will understand the frustrations caused by everybody blaming someone else, in the absence of a single contractor to whom one may look to sort out such matters. This is the main motive behind the avoidance of privity with sub-contractors. But the machinery does have disadvantages for the contractor, who has to put up with a sub-contractor whom he might not himself have selected. In more recent times forms of contract have been evolved which press less heavily upon the contractor, but the contract with which we are concerned in this case is of the traditional kind, and I think that my general description is appropriate to it.
The main contract, concluded in July 1987, is a bills of quantities (or “rates”) contract. The documents making it up are the tender, including conditions of tender, its acceptance, the articles of agreement, the conditions of contract (GO 677), the specification, the drawings and the bills of quantities. When the contract was concluded, the specification, drawings and bills for the fire-alarm sub-contract had not yet been prepared. Much was sought to be made of this fact.
Do the sub-contract works form part of the main contract works?
Notwithstanding that the tender form stated that the fire-alarm nominated sub-contract would later be advertised separately, it, together with other such nominated sub-contracts, was said to be part of the “works in accordance with the drawings, specifications, bills of quantities and conditions of contract”. The intention was that the fire-alarm drawings, specifications and bills would be brought into existence and would form part of the contract. Therefore, notwithstanding that the sub-contract specifications and bills had not yet been prepared, I would have thought that this provision alone puts an end to the much pressed submission that the nominated fire-alarm sub-contract works did not form part of the “Works” as defined in clause 1 (1) (n) of the conditions of contract. Essentially the “Works” are “all the buildings, structures or services ..... that are to be erected or constructed in terms of this contract ...” (own emphasis). Clause 3(1) requires the contractor to “provide everything necessary for the proper execution of the works, .... and carry out and complete the works to the satisfaction of the representative/agent ....” Clause 21(1) requires the contractor to deliver “the works and premises when completed .... fit for occupation and complete in every particular ....” It is difficult to think of an archive building fit for occupation without a proper fire-alarm system.
As the argument of Mr Duminy, for the contractor, developed, it became apparent that what he was contending for was that clause 16, headed “Nominated Sub-contractors”, supplied a self-contained contractual regime which took all nominated sub-contractual works outside the ambit of the “Works” and beyond the reach of operation of clauses 3 (1) and 21 (1), as also much of the rest of the contract. I must say that if clause 16 does have this sequestering function, that function is most artfully masked and seemingly much contradicted. However, in order to demonstrate this conclusion, and also for the purposes of the next argument, concerned with the extent of the contractor’s duties even if the “Works” argument should fail, it is necessary to set out much of clause 16, which reads in part:

“16. (1) The director-general may nominate a sub-contractor to execute work or supply or fix goods and such sub-contractor shall hereinafter be referred to as a ‘nominated sub-contractor’.
16. (2) The fact that the director-general has nominated a sub-contractor shall not create privity of contract between the director-general and such nominated sub-contractor.
16. (3) The contractor shall at any time on being requested to do so by the director-general enter into a contract with a nominated sub-contractor within fourteen days of such request in respect of the work for which he has been nominated, in which contract the contractor shall, inter alia, secure mutatis mutandis for himself the same rights that the director-general has in terms of this contract. If the contractor satisfies the director-general in writing that he is unable to enter into such a contract because -

16. (3) (a) he has an objection which is acceptable to the director-general against such nominated sub-contractor;

16. (3) (b) a nominated sub-contractor declines to enter into a contract with the contractor whereby he undertakes the obligations set above; or
16. (3) (c) a nominated sub-contractor declines to save harmless and indemnify the contractor against any negligence on the part of such nominated sub-contractor, his agents, workmen and servants or against any misuse by him or them of any materials or plant being the property of the contractor and against all claims a aforesaid or any claim under the workmen’s Compensation Act, 1941, as amended,

The director-general shall be entitled to nominate another
sub-contractor.

16. (4) The contractor furthermore undertakes -

16. (4) (a) as against the director-general, to carry out his obligations to the nominated sub-contractor under the nominated sub-contract and to co-ordinate the nominated sub-contractor’s work and the work under the main contract and to ensure that the nominated sub-contractor carries out and completes the work under such sub-contract to the director-general’s satisfaction;

16. (4) (b) in case of default by the nominated sub-contractor, to take steps against the nominated sub-contractor similar to those set out in 24 hereof if and as requested to do so by the director-general or, if requested to do so by the director-general, to cede to the director-general any rights that the contractor may have against such nominated sub-contractor arising from such default;

16. (4) (c) to institute action against the nominated sub-contractor to enforce compliance by the nominated sub-contractor with such sub-contract or to claim damages for non-compliance or breach of such sub-contract or to take such other steps or to claim such other sums as may be taken or may be claimable under or arising from non-compliance or breach of such sub-contracts or from any indemnities given by the nominated sub-contractor to the contractor. If requested to do so by the director-general or, if requested to do so by the director-general, to cede to the director-general any rights that the contractor may have against such nominated sub-contractor arising from such non-compliance or breach;
16. (4) (d) if requested to do so by the director-general, to apply for the sequestration of the nominated sub-contractor’s estate (or for the liquidation thereof in the case of a company), to prove claims against such estate and to take all such steps as may be necessary for the recovery of amounts due under or arising from such sub-contracts or any indemnities given or, if requested to do so by the director-general, to cede to the director-general any rights that the contractor may have against such nominated sub-contractor.

16. (4) (e) in the event of the liquidation or sequestration, as the case may be, of the nominated sub-contractor’s estate or the abandonment by him of his contract or of the termination of such contract, to enter into a contract with another contractor nominated by the director-general to complete the work under such first mentioned contract; and further agrees that all the provisions of this contract shall apply mutatis mutandis with equal force to such fresh or any substituted nominated sub-contracts;

16. (4) (f) to advise the director-general immediately in the case of the sequestration of the estate of the nominated sub-contractor (or of its liquidation, in the case of a company) or of any breach of contract by such nominated sub-contracts or of his failure to pay any damages or the amounts due under or arising from such sub-contractor and of the steps he proposes to take to carry out his obligations as set out above;

16. (4) (g) that his failure to carry out any of his obligations under 16 hereof shall constitute a default as contemplated under 24 hereof and that the director-general shall be entitled to exercise the rights therein set out and, in addition thereto, to claim from the contractor any damage, loss or costs that the director-general may suffer as a result of such failure, to determine such damage, loss or costs and to deduct the same from any amounts due to the contractor under this contract or any other contract heretofore or hereafter entered into between the government and the contractor.
16. (5) Payment shall be made to a nominated sub-contractor by the contractor within seven days of his receipt of a progress payment under 23 hereof which includes the value of such nominated sub-contractor’s work.
(6) . . .” (Own emphasis).


In clause 16 (4) (a) conceivable support for the contractor’s argument may be found in the distinction drawn between the nominated sub-contractor’s work and the work under the main contract, but I think that all that is in fact achieved is a convenient means of distinction between the particular sub-contractor’s work and all the other work, particularly as the “work under the main contract” must include work done by other nominated sub-contractors. This is so because the contractor does not dispute that he must co-ordinate the work of all sub-contractors as well as his own work. There are in fact other nominated sub-contractors. The result is that no significant support can be derived from the phrase in question. On the other side there are numerous clauses which would be unworkable, or practically so, if the work done by nominated sub-contractors did not form part of the works. Among them are 6 (5), 6 (6), 6 (7), 9, 10 (2), 13 (2) and 22 (1). To take two examples. Clause 6 (7) entitles the employer’s engineer to instruct the contractor to remove “any part of the Works” which he decides is not in accordance with the contract. This is a right fundamental to the proper performance of the contract, and it is difficult to conceive of its being hedged around in the case of sub-contractors. Clause 9 entitles the engineer to be notified by the contractor whenever “a portion of the Works” subject to measurement is to be covered up. Is the work of a nominated sub-contractor, whose work must also be measured, to be excepted? More generally, the exclusion of such work from the “Works” would be quite contrary to one of the essential features of the institution of nominated sub-contracts.
Faced with such difficulties, Mr Duminy was driven to concede that what the contractor had to deliver under the main contract was a building with a fire-alarm system and not a building devoid of one. This concession, inevitably made, I think, cannot be successfully qualified, as Mr Duminy tried to do, and the
ineluctable conclusion is that work to be performed under the fire-alarm nominated sub-contract also constitutes part of the “Works” under the main contract. This conclusion agrees with van Zyl J’s judgment up to this point.
Is the contractor responsible for the quality of the sub-contract works?
The next main argument was that, even if this be so, it was not part of the contractor’s duties to exercise or provide “technical supervision” (as opposed to administrative or co-ordinating supervision). Consequently, so it was contended, the contractor cannot be held liable for defective work of this nature done by a nominated sub-contractor being paid for. Faced by questions as to where technical specialist skill ended and where ordinary builder’s skill began, Mr Duminy adapted his argument so that his submission is that the contractor is relieved from examining the quality of all nominated sub-contract works, regardless of the level of skill required to test their sufficiency. This broadening of the submission was again, I think, inevitable, in the light of an example such as this. Suppose that the contractor is an ordinary builder who is going to do the brickwork, but the employer has decided that the foundations are to be laid under a nominated sub-contract. I do not think that any real distinction in the degree of skill is perceivable, so that a distinction cannot be made on that ground. Hence the line of distinction has to become nomination or no nomination, leading inevitably to the submission mentioned earlier that the works of all nominated sub-contractors are excluded from the works. Pausing at this point, I find the notion that the contractor in the example given is not liable for the quality of the foundations a startling one.
The general provision in clause 16 that is relevant and in itself conclusive on the question presently under consideration is that contained in clause 16 (4) (a), the pertinent part of which I repeat : “The contractor furthermore undertakes - . . . (a) . . . to co-ordinate the nominated sub-contractor’s work and the work under the main contract and to ensure that the nominated sub-contractor carries out and completes the work under such sub-contract to the Director-General’s satisfaction”. (Own emphasis). The sense in which the word “ensure” is used here is “to warrant” or “to guarantee”. In other words the contractor undertakes to the employer that he will deliver the sub-contract works to the employer in terms of the specifications. The employer’s position is further strengthened by clause 16 (4) (g), which makes the contractor’s failure to carry out any duty under clause 16 a breach, which entitles the employer to resort to the remedies contained in clause 24. Clause 24 (1) (d) in its turn states that the contractor is in default if he fails to comply with the provisions of clause 16. Accordingly I must disagree entirely with van Zyl J’s conclusion that: “[T]here is no basis for the [employer’s] suggestion that the [contractor] breached the main contract by failing to ensure that [the sub-contractor] complied with its obligations in terms of the nominated sub-contract”. As to how the contractor’s duty was to be fulfilled, in argument much emphasis was placed upon legal remedies. Sensible owners and builders do not conduct their business in the courts, except when it is essential. In the normal course the contractor’s skilled supervisor or variously skilled supervisors should examine work soon after it is done and order sub-contractors, whether nominated or not, to remove work not in accordance with the contract and do it over properly. Had the contractor in this case equipped himself to do that, much cost, both legal and otherwise, would have been spared.
Contrary to the views I have expressed, Mr Duminy argued that the words quoted from clause 16 (4) (a) do not convey the generality which on their face they bear, but that they are confined and limited in their operation to the particular remedies set out in the succeeding sub-paragraphs, such as (b) (c) and (d). Further it was argued that the only initiating steps that the contractor need take are to advise the employer of the sub-contractor’s breaches and other shortcomings. Thereafter he may sit back passively and await the employer’s decisions to do or not to do this or that. I disagree entirely. Clause 16 (and particularly sub-clauses (b) to (f) of it) is not a limiting and exclusive codification of the employer’s rights and the contractor’s duties in respect of nominated sub-contractors. It must be seen against the ample background of the common law and against the rest of the contract. The contractor has his own rights against the sub-contractor, even be he nominated, under the sub-contract as given force by the common law, and he is obliged to use his rights when indicated. The employer’s position is similar, save that he relies upon the main contract, again as given force by the common law, and the power he is given under the same to require the contractor to compel the sub-contractor’s performance under the sub-contract. He is not confined to the special remedies set out in clause 16 (4). These are explicit additional remedies, which may either not be available at common law, or which might arguably fall into that class. The object is to strengthen the employer’s position, where he has no privity with the sub-contractor, and avoid unnecessary arguments. I conclude that clause 16 (4) (a) means exactly what it says. The contractor must ensure that the nominated sub-contractor performs, or face liability in damages.
If the contractor does not dispose over the skills necessary to supervise specialised work then he must either acquire them or not undertake the contract. He is not entitled to make a virtue of his lack of skill to excuse himself from supplying “technical supervision”. The contractor called witnesses who claimed that builders in the Western Cape did not have such skills and they were not expected to have them. According to them the contractor was entitled to rely on the employer’s specialist engineer, in this case Reitz and Geithner. No trade usage to this effect was pleaded. No doubt there are several reasons for this, one of them perhaps being that on the contractor’s inevitable concession a builder would, in terms of such a trade usage, also not be expected to provide “technical supervision” of foundation laying, in the example already given. Trade usage aside, this evidence is inadmissible. It is no mere background. It directly contradicts the contract. I say this because the employer’s engineer is employed and paid by him to look after his interests. He is not employed nor paid by the contractor. Nor may the contractor give him any instructions. Nor does the engineer owe loyalty to the contractor. He owes it to the employer, who is at times the contractor’s adversary with the engineer his champion.
A further argument raised on behalf of the contractor is that there is no separate item for “technical supervision” in the bills of quantities. Ergo no duty, runs the argument. This argument stems from the notion that there is something extraordinary or unexpected, rather than integral, about such supervision, which was the view expressed in the evidence held inadmissible. I do not agree. No special rate is provided for “ordinary” supervision of sub-contractors or for supervision of the contractor’s own employees. Yet such supervision must be provided. That is common cause. What has to be decided is whether in terms of the contract “technical” supervision also has to be provided. As I have sought to demonstrate, the distinction between “technical” and “ordinary” nominated sub-contracts fades away once examined. There is therefore simply no basis for requiring special provision for supervision if supervision in either form is needed to deliver complete works complying with the contract. Nor is there any basis for requiring special provision simply because a sub-contractor is nominated, unless one starts from the premise that the contractor is not responsible for the performance of such persons, which would beg the question.
Accordingly, subject to the further points to be dealt with, I am of the view that the counterclaim should have succeeded.
I have made no mention of English cases such as North West Metropolitan Regional Hospital Board v T A Bickerton & Son Ltd [1970] 1 All ER 1039 (H L) and the considerable literature that they have generated, not because I am unacquainted with the same, but because, whatever tendencies may be indicated, they do not help to solve the issues before us, which involve a breach by the contractor.
The effect of taking cession
As was his entitlement, the employer did take cession of the contractor’s rights against the sub-contractor, under clause 16 (4) (b). This act, so it was argued, once performed constituted an election, which when made constituted a waiver of all other rights which the employer might otherwise have had against the contractor. I can find no trace of a suggestion in the clause that the taking of a cession has so drastic a consequence as to terminate permanently all the employer’s remedies. He might, for instance take cession at a stage when neither he nor the contractor has means of knowing whether the sub-contractor is worth suing. Why, in such a situation, should he not be entitled to turn back to the contractor upon discovering that the sub-contractor is indeed not worth powder and shot? Cession is, to my mind, merely an additional course, not available as of right under the common law, but in some cases of value to the employer. He might, for instance, conclude that his contractor has not the means, or the special skills or even the determination to pursue litigation to a successful conclusion. Even without these factors he may simply prefer to have direct control over the litigation.
There was some cursory debate before us as to whether it would be open to an employer who has demanded and received cession of the contractor’s rights against the sub-contractor to institute and pursue a claim against the contractor without either excussing the sub-contractor or re-ceding the rights to the contractor, or without having some sufficient justification for not proceeding against the sub-contractor in terms of the cession. As the matter was not fully argued, I prefer to leave the question open. This point was not raised by the contractor either in the court a quo or in this court. It arose from a question put by the court. Even if the point is sound in law, if it had been raised as a special dilatory defence in the court a quo the employer might have been able to answer it by reference to facts which are not before the court. Accordingly, it is not open to the contractor to rely upon it now.
Circumstances surrounding termination of sub-contract as a defence
I mention this subject also because it was argued, not because I think that it is an issue. It arises in this way. After repeated attempts had been made to obtain satisfaction from the sub-contractor without avail, the contractor wrote to the employer requesting instructions to terminate the sub-contract. (In passing, thereby impeccably recognizing the long-established order of things as between employer, contractor and sub-contractor). On 2 December 1991 the employer responded by instructing the contractor to do so, which he did on the next day. Also on 2 December the employer nominated two new persons to complete the sub-contract, stressing the urgency of the situation. The contractor was asked to confirm the re-nomination. This the contractor declined to do, on 4 December, giving as his reason that it had not been given sufficient information as to the basis on which the new nominees were to be appointed. With a dispute as to the financial implications of the first sub-contractor’s default in prospect, the contractor seems to have required the employer to surrender his rights against him as the price of acceptance of the new nominees. This may have been a breach on the contractor’s part. It seems as if it was. Mr Duminy, however, contends that it was the employer who was in breach. Who was in breach was not an issue below, and even if it were possible for us to resolve the question, which I think it is not, I fail to see what bearing it has on the decision of the issues which are before us. Supposing that the employer should have stayed his hand in making the appointments and was for that reason in breach, I do not think that the administration of the contract is to be treated as the equal of playing a game of forfeits, where one wrong move entails losing all. The postulate for purposes of this defence is that there had been a breach by the sub-contractor, for which the contractor was responsible, and that the employer had consequently suffered damage. It is possible that the extent of the damage, i.e. the cost of putting right, might have been less if the process of re-nomination had run its full course, rather than that the employer should have engaged the two nominees as his direct contractors, which is what happened when the contractor adopted the stance already mentioned. If so, this might be a matter for mitigation when quantum has to be decided (I express absolutely no opinion on the matter). The employer’s conduct might also once have given rise to a claim by the contractor for the profit that he would have been entitled to as a percentage of the ultimate price of the provisional sum (the sub-contract price). But these are all things that would have had to be raised and I fail to see that their possible existence in the past detracts from the fact that the employer has suffered a loss for which the contractor is accountable if the appeal succeeds in other respects.
Prescription
Finally, the contractor contends that, all else failing, the employer’s counter- claim has become prescribed. The issue is when prescription began to run. The relevant facts are that the employer became aware of the defects by not later than 30 May 1991. The sub-contract was terminated on 3 December 1991. The employer’s counterclaim was delivered on 1 December 1994.
In terms of s 12 (1) of the Prescription Act 68 of 1969 prescription commences to run as soon as a debt is due. A debt is deemed not to be due until the creditor has knowledge of the facts from which the debt arises: s 12 (3). If the employer’s claim in this case began to prescribe only some time after the date on which the employer gained such knowledge, then the date of gaining knowledge, which is to be taken to be 30 May 1991, would be irrelevant. My conclusion is that that is in fact the case. I accept the employer’s argument that the earliest possible such date is 3 December 1991, which falls within the prescriptive period. The basis of the argument is that the employer would not have been entitled to bring its damages claim merely upon the defective work originally delivered being discovered. This is so, as it is of the nature of a building contract such as this one, that the defaulting party usually has an opportunity and indeed a duty to put right initially defective work. Clause 6 (7), already mentioned, entitles the employer’s engineer to require defective work to be done over, and under the sub-contract the contractor has the same right against the sub-contractor. These are not the only provisions that are relevant, but it is unnecessary to refer to more. The sub-contractor’s breach, once committed, is not set in stone. The relevant engineer can require the works to be broken up and the breach to be remedied. But a stage is reached when the defaulter is entitled to no more chances. That is the very earliest stage at which the employer’s damages claim could conceivably have become due. In the present case it could, at the earliest, only have been on the date on which the sub-contract was cancelled, 3 December 1991, which falls within the prescriptive period. The matter is complicated by the dispute about the nomination of new nominated sub-contractors, but this does not detract from the fact that the very earliest date on which prescription could possibly begin to run


was 3 December 1991. The onus of proving that prescription had run rested on the contractor and he has failed to do so.
For these reasons I consider that the contractor has not proved that the counterclaim has become prescribed.
The appeal is allowed with costs, such costs to include those consequent on the employment of two counsel.
The following order is made in terms of an agreed draft:

1 Paragraphs 1, 5 and 6 of the order of the court a quo are set aside.
2 It is declared that respondent should bear the additional costs incurred as a result of the employment of the sub-contractors Visiotronic (Pty) Ltd and Whip Fire Protection Services (Pty) Ltd including the related supervision costs of the consulting engineers J D Reitz and Geithner.
3 The matter is referred back to the court a quo for a determination of the quantum of the claim in reconvention.

W P SCHUTZ

JUDGE OF APPEAL

CONCUR
HEFER JA
NIENABER JA


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