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Sutherland Shire Council v Benedict Industries Pty Ltd (No 4)

Sutherland Shire Council v Benedict Industries Pty Ltd (No 4)

Case [2015] NSWLEC 101

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AGLC: Sutherland Shire Council v Benedict Industries Pty Ltd (No 4) [2015] NSWLEC 101
Case: [2015] NSWLEC 101
Decision Date: 19 June 2015

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Collateral challenge dismissed. Costs reserved.

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Citations

Sutherland Shire Council v Benedict Industries Pty Ltd (No 4) [2015] NSWLEC 101

Most Recent Citation

McCudden v Cowra Shire Council [2016] NSWLEC 14

Cases Citing This Decision

Benedict Industries Pty Ltd v Sutherland Shire Council [2015] NSWCCA 272
Citation 1 (Para 4)

…The primary judge rejected the application by judgment of 19 June 2015 ([2015] NSWLEC 101). Benedict now seeks leave to appeal and, if leave is granted, appeals against that judgment pursuant to s 5F of the Criminal Appeal Act 1912 (NSW). It accepts that it requires leave to appeal (see s 5F(3)(a)). Leave to appeal…
Secretary, Department of Planning, Industry and Environment v JP & LR Harris Pty Ltd; Secretary, Department of Planning, Industry and Environment v Woolondoon Pty Ltd (No 2) [2025] NSWLEC 49
Citation 2 (Para 46)

…hallenged, the prosecutor bears the burden of proof: Selby v Pennings ; [7] Sutherland Shire Council v Benedict Industries Pty Limited (No 4). [8] 5. [2015] NSWLEC 101. 6. [2025] NSWLEC 40 at [18]. 7. (1998) 102 LGERA 253 at 265 (Ipp J), and at 283 (Owen J). 8. [2015] NSWLEC 101 at [10] (Pepper J).…
Secretary, Department of Planning, Industry and Environment v Balmoral Farms Pty Ltd [2025] NSWLEC 40
Citation 3

…d Shire Council v Benedict Industries Limited (No 3) [2025] NSWLEC 97 Sutherland Shire Council v Benedict Industries Pty Ltd (No 4) [2015] NSWLEC 101 Texts Cited: Government Sector Employment (Senior Executive Bands) Determination 2014 Anthony Lean, Chief Executive of the Office of Environment and Heritage, Instrume…
Environment Protection Authority v Pullinger (No 2) [2024] NSWLEC 51
Citation 4

…8) 102 LGERA 253; (1998) 19 WAR 520 Sutherland Shire Council v Benedict Industries Pty Ltd (No 4) [2015] NSWLEC 101 Sutton v R (1984) 152 CLR 528; [1984] HCA 5 Taikato v The Queen (1996) 186 CLR 454; [1996] HCA 28 Udy v Hornsby Shire Council [2007] NSWLEC 242 Texts Cited: Macquarie Dictionary , 9th ed (2023) Categor…
Narrawallee Beach Environmental Group Inc v Shoalhaven City Council [2023] NSWLEC 78
Citation 5 (Para 51)

…The construction of council resolutions was considered by Pepper J in Sutherland Shire Council v Benedict Industries Pty Ltd (No 4) [2015] NSWLEC 101 at [49] (this point was undisturbed on appeal) citing Myer Queenstown Garden Plaza Pty Ltd v Corporation of the City of Port Adelaide (1975) 11 SASR 504 at 520 when We…
Ballina Shire Council v Joblin [2022] NSWLEC 90
Citation 6 (Para 46)

…rby J); Gray at [51]-[112]; Selby v Pennings (1998) 102 LGERA 253 at 265 (per Ipp J); Sutherland Shire Council v Benedict Industries Pty Ltd (No 4) [2015] NSWLEC 101 at [9].…
Environment Protection Authority v Eastern Creek Operations Pty Limited [2020] NSWLEC 182
Citation 7 (Para 4)

…rative act being the issuing of a statutory notice, such as occurred in Selby v Pennings (1998) 102 LGERA 253 and Sutherland Shire Council v Benedict [2015] NSWLEC 101 ( Benedict ), for example. Eastern Creek submits that the Court is able to determine such an attack as a preliminary matter in these proceedings purs…
WaterNSW v Harris (No 3) [2020] NSWLEC 18
Citation 8

…opic Asphalts Pty Ltd [2018] NSWCCA 202; (2018) 362 ALR 359 Sutherland Shire Council v Benedict Industries Pty Ltd (No 4) [2015] NSWLEC 101 Switzerland Insurance Australia Ltd v Mowie Fisheries Pty Ltd (1997) 74 FCR 205 The King v Hickman; Ex parte Fox and Clinton (1945) 70 CLR 598; [1945] HCA 53 Trives v Hornsby Sh…
Dungog Shire Council v Hunter Industrial Rental Equipment Pty Ltd (No 2) [2018] NSWLEC 153
Citation 9

…ncil (No 2) (1993) 78 LGERA 404 Temelkovski v Wright (2016) 218 LGERA 381; [2016] NSWLEC 112 Terranora Group Management Pty Ltd v Director-General Office of Environment and Heritage (2013) 200 LGERA 1; [2013] NSWLEC 198 Timbarra Protection Coalition Inc v Ross Mining NL (1999) 46 NSWLR 55; [1999] NSWCA 8 Tipfast Pty…
City of Ryde Council v Principal Healthcare Finance Pty Ltd (No 3) [2018] NSWLEC 12
Citation 10 (Para 110)

…nstruments that are ambiguous or uncertain so as to avoid inevitable invalidity”: Sutherland Shire Council v Benedict Industries Pty Ltd (No 4) [2015] NSWLEC 101, at [46].…
Sutherland Shire Council v Benedict Industries Pty Ltd (No 8) [2017] NSWLEC 4
Citation 11 (Para 479)

…collateral challenge to the validity of the TPO - which was dismissed by this Court in Sutherland Shire Council v Benedict Industries Pty Ltd (No 4) [2015] NSWLEC 101 and on appeal in Benedict Industries Pty Ltd v Sutherland Shire Council [2015] NSWCCA 272 the council argued that the combined effect of cls 2 and 5…
Principal Healthcare Finance Pty Ltd v Council of the City of Ryde [2016] NSWLEC 153
Citation 12 (Para 35)

…il (2006) 66 NSWLR 379; [2006] NSWCA 155 at [36] (McColl JA, with Beazley JA agreeing); Sutherland Shire Council v Benedict Industries Pty Ltd (No 4) [2015] NSWLEC 101 at [41] (Pepper J); Mosman Municipal Council v IPM Pty Ltd (2016) 216 LGERA 252; [2016] NSWLEC 26 at [117] (Pepper J); 4nature Inc v Centennial Sprin…
4nature Incorporated v Centennial Springvale Pty Ltd [2016] NSWLEC 121
Citation 13 (Para 182)

…llahra Municipal Council [2006] NSWCA 155; (2006) 66 NSWLR 379 at [36]–[46] and [63], Sutherland Shire Council v Benedict Industries Pty Ltd (No 4) [2015] NSWLEC 101 at [41]–[47] and IPM at [117]).…
Heatscape Pty Ltd v Mahoney (No 2) [2016] NSWLEC 45
Citation 14

…3 R v Wickham [2004] NSWCCA 193 Ryde City Council v Pedras [2009] NSWCCA 248 Sutherland Shire Council v Benedict (No 4) [2015] NSWLEC 101 Taylor v The Owners – Strata Plan No 11564 [2014] HCA 9; (2014) 253 CLR 531 Terrey v Department of Environment, Climate Change and Water [2011] NSWLEC 141 Thiess v Collector of Cu…
Mosman Municipal Council v IPM Pty Ltd [2016] NSWLEC 26
Citation 15 (Para 1)

…176 LGERA 71 at [22], Lloyd v Wollongong City Council [2015] NSWLEC 146 at [67] and Sutherland Shire Council v Benedict Industries Pty Ltd (No 4) [2015] NSWLEC 101 at [41]–[47]);…
McCudden v Cowra Shire Council [2016] NSWLEC 14
Citation 16 (Para 27)

…tructure to that applicable to the interpretation of an Act of Parliament ( Sutherland Shire Council v Benedict Industries Pty Ltd (No 4) [2015] NSWLEC 101 at [43]-[46]). In that case, Pepper J added at [46]:…

Cases Cited

Statutory Material Cited

Telstra Corporation Ltd v Australian Competition and Consumer Commission [2017] FCA 316
Citation 1 (Para 5)

…ch and Development Board [2002] FCA 1127; (2002) 124 FCR 316 (at [37]) and Telstra Corporation Ltd v Australian Competition and Consumer Commissioner (2008) 176 FCR 153 (at 194).…
Environment Protection Authority v Condon as liquidator for Orchard Holdings (NSW) Pty Ltd (in liq) [2014] NSWCA 149
Citation 2 (Para 1)

…08] HCA 38. (2008) 236 CLR 101 at [19], Environment Protection Authority v Schon G Condon as liquidator for Orchid Holdings (NSW) Pty Ltd (in liq) [2014] NSWCA 149; (2014) 86 NSWLR 499 at [43] and [44] and Public Service Association and Professional Officers’ Association Amalgamated Union of New South Wales v State…
Attorney-General (NT) v Emmerson [2014] HCA 13
Citation 3 (Para 2)

…379 at [23]–[26], Taylor v The Owners – Strata Plan No 11564 [2014] HCA 9; (2014) 88 ALJR 473 at [65]–[66] and Thiess v Collector of Customs [2014] HCA 13; (2014) 250 CLR 669 at [22] and [23]).…
Public Service Association and Professional Officers' Association Amalgamated Union of New South Wales v State of New South Wales [2014] NSWCA 116
Citation 4 (Para 1)

…] and [44] and Public Service Association and Professional Officers’ Association Amalgamated Union of New South Wales v State of New South Wales [2014] NSWCA 116 at [44]–[47]).…
Taylor v The Owners - Strata Plan No 11564 [2014] HCA 9
Citation 5 (Para 2)

…LR 503 at [39], Certain Lloyd’s Underwriters v Cross [2012] HCA 56; (2012) 248 CLR 379 at [23]–[26], Taylor v The Owners – Strata Plan No 11564 [2014] HCA 9; (2014) 88 ALJR 473 at [65]–[66] and Thiess v Collector of Customs [2014] HCA 13; (2014) 250 CLR 669 at [22] and [23]).…
Thiess v Collector of Customs [2014] HCA 12
Citation 6 (Para 2)

…6], Taylor v The Owners – Strata Plan No 11564 [2014] HCA 9; (2014) 88 ALJR 473 at [65]–[66] and Thiess v Collector of Customs [2014] HCA 13; (2014) 250 CLR 669 at [22] and [23]).…
Electricity Generation Corporation v Woodside Energy Ltd [2014] HCA 7
Citation 7 (Para 5)

…ens and Domain Trust v South Sydney City Council [2002] HCA 5; (2009) 240 CLR 45 at [39] and Electricity Generation Corporation v Woodside Energy Ltd [2014] HCA 7; (2014) 251 CLR 640 at [35]), or a development consent ( Allandale Blue Metal Pty Ltd v Road and Maritime Services [2013] NSWCA 103; (2013) 195 LGERA…
Lee v New South Wales Crime Commission [2013] HCA 39
Citation 8 (Para 6)

…ubordinate legislation outlined above, and the principle of legality (see the description of this principle in Lee v New South Wales Crime Commission [2013] HCA 39 at [29] per French CJ, [126] per Crennan J, [171]-[173] and [307]-[317] per Gageler and Keane JJ), no legislative intention can be divined on the par…
Allandale Blue Metal Pty Ltd v Roads and Maritime Services [2013] NSWCA 103
Citation 9 (Para 5)

…v Woodside Energy Ltd [2014] HCA 7; (2014) 251 CLR 640 at [35]), or a development consent ( Allandale Blue Metal Pty Ltd v Road and Maritime Services [2013] NSWCA 103; (2013) 195 LGERA 102 at [43] – [46]), is limited, a bare resolution of a council, unlike either of those documents, does not, of itself, purport to…
Certain Lloyd's Underwriters v Cross [2012] HCA 56
Citation 10 (Para 2)

…ner of Taxation v Consolidated Media Holdings (ACN 009 071 167) Ltd [2012] HCA 55; (2012) 250 CLR 503 at [39], Certain Lloyd’s Underwriters v Cross [2012] HCA 56; (2012) 248 CLR 379 at [23]–[26], Taylor v The Owners – Strata Plan No 11564 [2014] HCA 9; (2014) 88 ALJR 473 at [65]–[66] and Thiess v Collector of Cu…
Federal Commissioner of Taxation v Consolidated Media Holdings Ltd [2012] HCA 55
Citation 11 (Para 2)

…promulgated the legislation (see generally the principles summarised in Commissioner of Taxation v Consolidated Media Holdings (ACN 009 071 167) Ltd [2012] HCA 55; (2012) 250 CLR 503 at [39], Certain Lloyd’s Underwriters v Cross [2012] HCA 56; (2012) 248 CLR 379 at [23]–[26], Taylor v The Owners – Strata Plan N…
Master Education Services Pty Ltd v Ketchell [2008] HCA 38
Citation 12 (Para 1)

…EP and the TPO ( Collector of Customs v Agfa – Gevaert Ltd [1996] HCA 36; (1996) 186 CLR 389 at 398, Master Education Services Pty Ltd v Ketchell [2008] HCA 38. (2008) 236 CLR 101 at [19], Environment Protection Authority v Schon G Condon as liquidator for Orchid Holdings (NSW) Pty Ltd (in liq) [2014] NSWCA 149…
Tauszik v Gosford City Council [2006] NSWCCA 193
Citation 13 (Para 3)

…r with the taking of subsequent steps to advertise it in accordance with cl 13(6) to ensure that it came into effect ( Tauszik v Gosford City Council [2006] NSWCCA 193; (2006) 146 LGERA 428 at [20]–[26] per Tobias JA).…
J Aron Corporation v Newmont Yandal [2005] NSWSC 238
Citation 14 (Para 3)

…council resolutions but it has been endorsed for the purposes of construing corporate resolutions ( J Aron Corp v Newmont Yandal Operations Pty Ltd [2005] NSWSC 238 at [122]). In Yandal , although unnecessary to do so given the unambiguous nature of the text of the resolution in question, Austin J did not eschew th…
Gray v Woollahra Municipal Council [2004] NSWSC 112
Citation 15 (Para 2)

…order or instrument, the accused may mount a collateral attack on the validity of the statutory order instrument ( Gray v Woollahra Municipal Council [2004] NSWSC 112 at [51]–[112] and Liverpool City Council v Cauchi [2005] NSWLEC 675; (2005) 145 LGERA 1 at [41]–[42] and the authorities cited thereat).…
Australian Tea Tree Oil Research Institute v Industry Research and Development Board [2002] FCA 1127
Citation 16 (Para 5)

…such as Driscoll v J Scott Pty Ltd (1976) 36 LGRA 159 (at 164), Australian Tea Tree Oil Research Institute v Industry Research and Development Board [2002] FCA 1127; (2002) 124 FCR 316 (at [37]) and Telstra Corporation Ltd v Australian Competition and Consumer Commissioner (2008) 176 FCR 153 (at 194).…
Royal Botanic Gardens and Domain Trust v South Sydney City Council [2002] HCA 5
Citation 17 (Para 5)

…( Codelfa Constructions Pty Ltd v State Rail Authority (1982) 149 CLR 337 at 352, Royal Botanic Gardens and Domain Trust v South Sydney City Council [2002] HCA 5; (2009) 240 CLR 45 at [39] and Electricity Generation Corporation v Woodside Energy Ltd [2014] HCA 7; (2014) 251 CLR 640 at [35]), or a development c…
Residual Assco Group Ltd v Spalvins [2000] HCA 33
Citation 18 (Para 5)

…fundamental cannon of construction that legislatures intend to enact legislation that is valid and not invalid ( Residual Assco Group Ltd v Spalvins [2000] HCA 33; (2000) 202 CLR 629 at [28]). Corollary to this basic principle is the doctrine of severability, that is to say, where a provision of a subordinate l…
Airservices Australia v Canadian Airlines International Ltd [1999] HCA 62
Citation 19 (Para 6)

…per Barton J, Widgee Shire Council v Bonney [1907] HCA 11; (1907) 4 CLR 977 at 983, Air Services Australia v Canadian Airlines International Limited [1999] HCA 62; (1999) 202 CLR 133 at [229]–[232] and [240] per McHugh J and at [408] and [419] per Gummow J, Public Service Association at [48], Schon at [64] and…
Collector of Customs v AGFA-Gevaert Ltd [1996] HCA 36
Citation 20 (Para 1)

…able to the interpretation of subordinate legislation, for example, cl 13 of the 2000 LEP and the TPO ( Collector of Customs v Agfa – Gevaert Ltd [1996] HCA 36; (1996) 186 CLR 389 at 398, Master Education Services Pty Ltd v Ketchell [2008] HCA 38. (2008) 236 CLR 101 at [19], Environment Protection Authority v S…
Harrington v Lowe [1996] HCA 8
Citation 21 (Para 6)

…In Harrington v Lowe the plurality of the High Court articulated the test as follows ([1996] HCA 8; (1996) 190 CLR 311 at 328): A valid operation…might be preserved after textual surgery by operation of the “blue pencil” rule so that the valid portion could operate independently of the invalid portion, or, fail…
Re Dingjan; Ex parte Wagner [1995] HCA 16
Citation 22 (Para 9)

…egislation?” ( Sportodds Systems Pty Ltd v New South Wales [2003] FCAFC 237; (2003) 133 FCR 63 at [19]. See similarly Re Dingjan; Ex parte Wagner [1995] HCA 16; (1995) 183 CLR 323 at 372 and Pidoto v Victoria (1943) 68 CLR 87 at 100).…
Jovanovic v Southorn [1987] TASSC 17
Citation 23 (Para 7)

…should be construed benevolently ( Kruse v Johnson [1898] 2 QB 91 at 99, Ex parte Grinham; Re Sneddon (1959) 61 SR (NSW) 862 at 870 per Herron J and Southorn v Jovanovic (1987) 63 LGRA 277 at 282).…
Codelfa Construction Pty Ltd v State Rail Authority of New South Wales [1982] HCA 24
Citation 24 (Para 5)

…Whereas generally recourse to extrinsic material to construe a contract ( Codelfa Constructions Pty Ltd v State Rail Authority (1982) 149 CLR 337 at 352, Royal Botanic Gardens and Domain Trust v South Sydney City Council [2002] HCA 5; (2009) 240 CLR 45 at [39] and Electricity Generation Corporation v Woodside Energy…
Shanahan v Scott [1957] HCA 4
Citation 25

…A 265 Royal Botanic Gardens and Domain Trust v South Sydney City Council [2002] HCA 5; (2009) 240 CLR 45 Selby v Pennings (1998) 102 LGERA 253 Shanahan v Scott (1957) 96 CLR 245 Southorn v Jovanovic (1987) 63 LGRA 277 Sportodds Systems Pty Ltd v New South Wales [2003] FCAFC 237; (2003) 133 FCR 63 Sutherland Shire Council…
Commonwealth v Bank of New South Wales [1949] UKPCHCA 1
Citation 26 (Para 6)

…issibly rewrite statutory instruments that are ambiguous or uncertain so as to avoid inevitable invalidity ( Bank of New South Wales v Commonwealth (1948) 76 CLR 1 at 370-371 per Dixon J).…
Pidoto v Victoria [1943] HCA 37
Citation 27 (Para 9)

…3] FCAFC 237; (2003) 133 FCR 63 at [19]. See similarly Re Dingjan; Ex parte Wagner [1995] HCA 16; (1995) 183 CLR 323 at 372 and Pidoto v Victoria (1943) 68 CLR 87 at 100).…
Carbines v Powell [1925] HCA 16
Citation 28 (Para 3)

…In short, “you may complement, but you may not supplement, a granted power” ( Carbines v Powell (1925) 36 CLR 88 at 92 per Isaacs J, quoted in Shanahan at 254).…
Widgee Shire Council v Bonney [1907] HCA 11
Citation 29 (Para 6)

…at quam pereat ) (see Birch v Australian Mutual Providence Society [1906] HCA 51; (1906) 4 CLR 324 at 343 per Barton J, Widgee Shire Council v Bonney [1907] HCA 11; (1907) 4 CLR 977 at 983, Air Services Australia v Canadian Airlines International Limited [1999] HCA 62; (1999) 202 CLR 133 at [229]–[232] and [240]…
Commissioner of Taxation v Consolidated Media Holdings Ltd [2012] HCATrans 282
Citation 30 (Para 2)

…e legislation (see generally the principles summarised in Commissioner of Taxation v Consolidated Media Holdings (ACN 009 071 167) Ltd [2012] HCA 55; (2012) 250 CLR 503 at [39], Certain Lloyd’s Underwriters v Cross [2012] HCA 56; (2012) 248 CLR 379 at [23]–[26], Taylor v The Owners – Strata Plan No 11564 [2014] HCA 9…
Sportodds Systems Pty Ltd v State of New South Wales [2004] HCATrans 464
Citation 31 (Para 9)

…evant Acts Interpretation provision), or is the Court itself making legislation?” ( Sportodds Systems Pty Ltd v New South Wales [2003] FCAFC 237; (2003) 133 FCR 63 at [19]. See similarly Re Dingjan; Ex parte Wagner [1995] HCA 16; (1995) 183 CLR 323 at 372 and Pidoto v Victoria (1943) 68 CLR 87 at 100).…
Resort Management Services Ltd v Noosa Shire Council [1993] QCA 347
Citation 32 (Para 1)

…ieve legislative change (for example to make a TPO or to amend the 2000 LEP), are not themselves legislative, but are administrative in character ( Resort Management Services Ltd v Noosa Shire Council (1993) 80 LGERA 265 at 269 per Ambrose J).…
Sutherland Shire Council v Benedict Industries Pty Ltd (No 3) [2015] NSWLEC 97
Citation 33 (Para 1)

…The factual background to this collateral challenge can be found in Sutherland Shire Council v Benedict Industries Pty Ltd (No 3) [2015] NSWLEC 97 (at [4]–[6]). It is not repeated here.…
Parks and Playgrounds Movement Inc v Newcastle City Council [2010] NSWLEC 231
Citation 34 (Para 6)

…despite” in cl 7(2) of the 2006 LEP is that cl 7(1) must be read subject to cl 7(2) ( Parks and Playgrounds Movement Inc v Newcastle City Council [2010] NSWLEC 231; (2010) 179 LGERA 346 at [97]–[105] per Biscoe J). And the term “continue” in cl 7(2)(a), when read in conjunction with cl 4 of the 2006 LEP, means that…
Dennis Flaherty on behalf of Strathfield Council v Columbia Nursing Homes Pty Limited [2007] NSWLEC 148
Citation 35 (Para 7)

…purpose of that provision (see s 45(2) of the Interpretation Act and Flaherty (On behalf of Strathfield Council) v Columbia Nursing Homes Pty Ltd [2007] NSWLEC 148; (2007) 152 LGERA 383 at [27] per Jagot J). Moreover, even if s 45 did apply, resolution 4 constitutes sufficient “evidence to the contrary” to displace…
Liverpool City Council v Cauchi [2005] NSWLEC 675
Citation 36 (Para 2)

…validity of the statutory order instrument ( Gray v Woollahra Municipal Council [2004] NSWSC 112 at [51]–[112] and Liverpool City Council v Cauchi [2005] NSWLEC 675; (2005) 145 LGERA 1 at [41]–[42] and the authorities cited thereat).…
Liversidge v Anderson [1941] UKHL 1
Citation 37 (Para 4)

…ower in the case of delegated legislation”: see now O Jones, Bennion on Statutory Interpretation (6th ed 2013), p 238. In Liversidge v Anderson [1941] UKHL 1http:// [1942] AC 206http:// at 223, Viscount Maugham said, of an argument resembling that of the EPA, that (references omitted): “Orders in Council making…

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