EFL - it could be that the council mans tester is faulty, uncalibrated, he doesn't know how to use it or he doesn't know / understand what the readings should be.
If you have taken a Ze, a Zs and checked the r1r2 then I suspect the fault may be at his end with either his technique, knowledge or equipment.
If you have taken a Ze, a Zs and checked the r1r2 then I suspect the fault may be at his end with either his technique, knowledge or equipment.