Judicial ReviewFifth edition

Sir M ichael S upperstonc

Jam es G oud ie Q C

Sir Paul W alker

General editor:

P ro fesso r H elen Fenw ick

0̂ LexisNexis

Contents

Foreword

Preface

Contributors

Table of Statutes

Table of Statutory Instruments and Codes of Practice

Table of European and International legislation

Table of Foreign legislation

Table of Cases

C h a p te r 1: In tro d u c tio n P ro fesso r H elen Fenw ick

P re lim inary 1-1

S etting jud ic ia l review in co n tex t 1*2

Types o f activ ity th a t can be the sub ject o f judicial review 1.3

T h e n a tu re o f judicial review 1-4

G ro u n d s o f review 1.5

C ro w n Proceedings 1-6

E u ro p ean U nion law 1.7

R em edies an d w h o can seek them 1 -8

P rocedure 1.9

T he im p ac t o f devo lu tion o n jud ic ia l review 1-10

Jud ic ia l review in S cotland 1.11

C h a p te r 2: Jud ic ia l Review: the H isto rica l B ackgroundP rofesso r G avin D rew ry

In tro d u c tio n 2.1

7'he p re-h is to ry o f jud ic ia l review : rem edies 2 .2

Jud ic ia l review : the D iceyan legacy 2.3

Contents

T w entie th an d tw en ty -first cen tu ry developm ents

C h a p te r 3: Jud ic ia l Review: its P rovenance an d Scope Jude B unting

In tro d u c tio n

O rig in s o f C PR P art 54

Public law /p riva te law d icho tom y

T h e reasonab leness o f ad m in is tra tiv e d iscre tion

C onclusion

C h a p te r 4: T h e H u m an R ights A ct an d Jud ic ia l Review A nthony B radley Q C (H on) an d S arah F raser Butlin

T he b ack g ro u n d to the I lum an R ights Act 1998

The case for incorporation of Convention rights

T he s tru c tu re o f the H RA 1998

Convention rights - their definition and application

Incompatibility with a Convention right

Remedies for breach of Convention rights

Other provisions

Joint Committee on Human Rights

Im plications o f the H R A 1998 for jud ic ia l review

Distinction between primary and subordinate legislation

Review of subordinate legislation under HRA 1998

The duty of public authorities to act compatibly with Con­vention rights

Meaning of 'public authority’

Horizontality

Remedies

Compensation

Compensation in respect of judicial act

A spects o f E u ropean C onven tion law

The right to a hearing in matters of civil right

The interpretation of art 6(1)

The test of 'full jurisdiction’

The test of ‘full jurisdiction’ qualified

Public law decisions excluded from art 6(1)

Acts of public authorities must be ‘prescribed by law’

2 .4

3.1

3 .2

3.3

3 .4

3.5

4.1

4.2

4.3

4.4

4.5

4.6

4.7

4.8

4 .9

4.10

4.11

4.12

4.13

4.14

4.15

4.16

4.17

4 .18

4.19

4.20

4.21

4.22

4.23

4.24

xvi

Contents

M argin of appreciation and the discretionary area of judgment 4.25

C h ap te r 5: T h e A m bit o f Jud ic ia l Review Clive Sheldon Q C

W hen is judicial review available? 5.1

P rem atu rity 5 .2

W ho , o r w h a t, is am enab le to jud ic ia l review ? 5.3

E m ploym ent 5 .4

Land an d com m ercial tran sa c tio n s 5.5

Policy decisions 5 .6

N a tio n a l security 5 .7

T h e p rerogative 5 .8

P articu lar m a tte rs affecting ju risd ic tion 5 .9

A perspective from N o rth e rn Ire land 5 .1 0

T he re la tionsh ip of judicial review w ith o rd in ary ac tions 5.11

O u ste r o f jud ic ia l review 5.12

C h a p te r 6: Illegality: the P roblem o f Ju risd ic tio n Tom C ross

In tro d u c tio n 6.1

T he u ltra vires theory an d A n ism in ic 6 .2

C riticism s o f the com m on law position 6.3

Parliamentary sovereignty 6.4

Ouster clauses and the ultra vires theory 6.5

Ouster clauses and inferior courts 6.6

Ouster clauses and the rule of law 6.7

Collateral challenges 6.8

The position of the courts 6.9

T h e significance o f the d eb a te 6 .1 0

C onclusions 6.11

XVI I

Contents

C h a p te r 7: D isc re tion an d D uty: the Lim its o f Legality A zeem S u terw alla a n d K ath erin e O ’Byrne

In tro d u c tio n

D iscre tion an d du ty

Categories of discretion and duty

Duty to exercise power couched in discretionary terms

Duty to determine with discretion as to determination

Duty to act dependent on exercise of discretion

Duty to achieve a result with discretion as to how

Discretion whether to act at all but duty to act in a particular manner if discretion exercised

A discretion may be dependent on satisfaction of a precon­dition as to its exercise

Pure discretion

T he H u m an R ights A ct 1998

Are the re unrev iew able d iscretions?

P o ten tia l g ro u n d s o f challenge to the exercise o f d isc re tio n ­ary pow ers

U nlaw ful sub-delegation : fe ttering by d ivestm en t

Judicial and similar proceedings

Delegation and agency

Delegation and divestment

Acting under dictation

Government departments

Local authorities

F ette ring d iscre tion

Tribunals and licensing bodies

Other situations

Contract, estoppel and legitimate expectation

R elevan t/irre levan t co n s id era tio n s an d p ro p e r/im p ro p e r purposes

Relevant and irrelevant considerations

Improper purposes

Duality of purpose

Evidence of purposes

7.1

7 .2

7.3

7.4

7.5

7.6

7.7

7.8

7.9

7.10

7.11

7.12

7.13

7.14

7.15

7.16

7.17

7.18

7.19

7.20

7.21

7.22

7.23

7.24

7.25

7.26

7.27

7.28

7.29

XV11I

Contents

C h a p te r 8: U nreasonab leness A dam S traw

In tro d u c tio n

Overview of unreasonableness as a ground of review

Review of a decision outside the limits of reason

Terminology

Time at which the decision is to be tested

Evidence with which the decision is to be tested

Consequences of a finding of unreasonableness

R e la tio n sh ip betw een ‘u n reaso n ab len ess’ and ‘illegality’

Unreasonableness and illegality as grounds of review

U nreasonab leness an d p ro ced u ra l im p ro p rie ty

U nreasonab leness an d o th e r g ro u n d s o f review

Q ualifications o n app licab ility o f the princip le

Prerogative powers

Can the court review the rationality of government policy?

Review for unreasonableness of decisions which have been, or must be, considered by Parliament

T he p rincip le in o p era tio n

A decision which is imperfect need not be unreasonable

A decision may be invalid for lack of clarity

The reasoning of the decision-maker may be examined in appropriate cases

Deficiencies of logic may render a decision unreasonable

A material finding of fact is unreasonable if made in the absence of evidence capable of warranting such a finding

Assessments of relevancy must be within the limits of reason

The decision-maker’s evaluation of the m atter may be reviewed

It may be unreasonable to require that which cannot lawfully be done

Evaluation of interference with human rights

It may be unreasonable to make a decision which reserves to the decision-maker the exercise of arbitrary power in the future

The im portant role of the rule of law

It is unreasonable to impose conditions upon a benefit which are manifestly unjust

8.18.2

8.3

8.4

8.5

8.6

8.7

8.8

8.9

8.10

8.11

8.12

8.13

8.14

8.15

8.16

8.17

8.18

8.19

8.20

8.21

8.22

8.23

8.24

8.25

8.26

8.27

8.28

x i x

Contents

Delay

The court may consider whether information ought to he provided

Allocation of scarce resources

Considering exceptions to policy

Legitimate expectations and unfairness generally

Legitimate expectations and the substance of a decision

Unfair departure from promises, assurances or representations

Unfair treatment inconsistent with that afforded to others

Other unfair abuses of power

Substantive unfairness: a separate ground of review?

C h a p te r 9: P ro p o rtio n a lity A aron Baker

In tro d u c tio n

Overview of proportionality as a principle

Overview of the distinct functions for which the principle is employed

Terminology

T he logic o f p ro p o rtio n a lity in co m p ara tiv e perspective

Proportionality in the Kuropean Court of Justice

Proportionality and the European Convention on Human Rights

T he s tru c tu re o f p ro p o rtio n a lity as a test

Legitimate aim or pressing social need

Suitability

Necessity

Proportionality stricto sensu

EU p ro p o rtio n a lity in dom estic co u rts

The structure of the EC law test

P ro p o rtio n a lity u n d er the H u m an R ights A ct 1998

Section 6(1) LIRA and the standard of review

The inapplicability of the margin of appreciation

Deference and the area of discretionary judgment

Variable intensity of review and structured proportionality

Evidence to inform the proportionality balancing

P ro p o rtio n a lity as a free-stand ing g ro u n d o f review

8.29

8.30

8.31

8.32

8.33

8.34

8.35

8.36

8.37

8.38

9.1

9.2

9.3

9.4

9.5

9.6

9.7

9.8

9.9

9.10

9.11

9.12

9.13

9.14

9.15

9.16

9.17

9.18

9.19

9.20

9.21

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Contents

C h a p te r 10: P rocedural Rules an d C o n su lta tio n C h ris to p h e r K night

In tro d u c tio n 10-1

S ta tu to ry p ro ced u res 10.2

F ailu re to com ply: general 10.3

F ailu re to com ply: tim e lim its 10.4

S ta tu to ry p rocedu res an d the com m on law 10.5

C o n su lta tio n 10.6

Who should be consulted? 10.7

The nature of consultation 10.8

When should consultation begin 10.9

Providing appropriate information 10.10

Giving adequate time for response 10.11

Genuinely considering representations 10.12

Amending proposals: implications for consultation 10.13

Consequences of failure to consult 10.14

‘D ue in q u iry ’ 10.15

R easons 10 .16

Purposes and adequacy of reasons 10.17

Consequences of failure to give reasons 10.18

Contrast with appeals of judicial decisions 10.19

C h ap te r 11: N a tu ra l Justice an d Fairness: the A udi A lteramP artem RuleM ichael Beloff Q C an d R u p ert Beloff

In tro d u c tio n 11.1

Right to notice and opportunity to he heard 11-2

Co-extensive operation with the rule against bias 11.3

D evelopm ent o f the aud i a lte ram p artem ru le 11 -4

The Victorian era 11.5

Growth of interventionist government 11-6

T he c o u rts ’ reaction to regu la to ry functions 11 .7

The primrose path of deviation 11.8

The era of abdication 11.9

The Swinging Sixties 11.10

Fairness 11.11

x x i

Contents

The duty to be fair

Scope and application of the principles of natural justice

Implication into statute

The reach of the principles

Private law bodies

Some exemptions and limitations

Overlap between scope and content

Right, interest and legitimate expectation

Legitimate expectation

Fairness as a substantive concept

Excluding or modifying natural justice

National security

Urgency

Practicability

Preliminary determinations

Investigations and inquiries

Suspensions pending investigations

Extradition

Prerogative

Primary legislation

Delegated legislation

Exclusion by law

Fault other than that of the decision-maker

T he c o n ten t o f n a tu ra l justice o r fairness

Technical rules, self-incrimination and privilege

Notification of the date, time and place of the hearing

There must be notification of the case to be met

O pportunity to respond

Duty of decision-maker to assist?

Adequate time to prepare one’s case in answer

Staying proceedings

Decision-makers must not rely on points not argued

Decision-makers must take into account material submitted

Disclosure of material available to the decision-maker

Decision-makers must not rely on their own private inquiries

11.12

11.13

11.14

11.15

11.16

11.17

11.18

11.19

11.20

11.21

11.22

11.23

11.24

11.25

11.26

11.27

11.28

11.29

11.30

11.31

11.32

11.33

11.34

11.35

11.36

11.37

11.38

1 1.39

11.40

11.41

11.42

11.43

11.44

11.45

11.46

X X I I

Contents

Access to material relevant to one’s case 11.47

Oral hearings and witnesses 11.48

Cross-examination 11.49

Legal representation 11.50

Assistance by friend 11.51

He who decides should hear 11.52

Reasons 11.53

Right of appeal 11.55

T h ird p a rty in terests 11 .56

R esults o f b reach 11 .57

Waiver of breach 11.58

Remedies for breach 11.59

Discretion 11.60

Special s itu a tio n s 11.61

Licences 11.61

Discipline 11.62

Trade unions 11.63

Aliens/Immigrants 11.64

Employment and office holders 11.65

Academic status 11.66

Planning 11.67

Sport 11.68

Regulators 11.69

Public Procurement 11.69A

C om m unity law 11.70

E C H R an d H R A 1998 11.71

In te rn a tio n a l law 11 .72

C h a p te r 12: Bias — In terest an d F avour Jam es G oud ie Q C

In tro d u c tio n 12.1

A ctual bias 12.2

A p p earan ce o f bias 12.3

Party to the cause 12.4

Pecuniary interest 12.5

The quantum of the interest 12.6

Contents

Contrast with remote or contingent and non-beneficialinterests J 2.7

Effect of pecuniary interest 12.8

Public authorities 12.9

Non-pecuniary interests 12.10

The test for bias 12.11

Non-judicial bodies 12.12

Kinds of non-pecuniary interest 12.13

Incompatible functions 12.14

T he am b it o f the ru le ag a in st bias 12 .15

E xcep tions to the ru le 12 .16

Waiver 12.17

Contract 12.18

Statute 12.19

Necessity 12.20

C h a p te r 13: O th e r G ro u n d s o f Review A lex G ask

In tro d u c tio n 13.1

Bad faith 13.2

P rocedu ral frau d o r m ishap 13.3

V agueness 13 .4

M istak e o f fact 13.5

F iduciary du ty 13.6

C h a p te r 14: C row n P roceedings J o n a th a n Swift Q C

In tro d u c tio n 14.1

T he C ro w n ’s im m un ity from process 14.2

In ju n ctio n s 14.3

Contempt of court 14.4

Stays 14.5

Interim declaration 14.6

Interim habeas corpus 14.7

T he C arltona p rincip le 14.8

Public in te rest im m un ity 14.9

D ec lara tions o f incom patib ility 14 .10

X X I V

Contents

D am ages aga in st the C ro w n 14.11

C h a p te r 15: E u ropean U nion Law H ugh M ercer Q C

T h e n a tu re o f E u ro p ean U nion law 15.1

T reaties as sources o f U n ion law 15 .2

L egislation as a source o f U nion law 15.3

Measures which may be taken by the Council orthe Commission 15.4

Consequences of insufficiently precise measures 15.5

G enera l princip les o f E u ropean U nion law 15 .6

E nforcem ent o f U nion Law 15.7

P re lim inary ru lings 15.8

R em edies in n a tio n a l cou rts 15 .9

E uropean C o u rt ac tions aga in st M em ber States 15 .10

E u ro p ean C o u rt ac tions ag a in st in stitu tio n s 15.11

C h a p te r 16: Rem edies: M an d ato ry , P roh ib iting & Q uash ing O rd e rsS tephen Reeder

T h e rem edies availab le on an ap p lica tio n lo r Judicial R eview 16.1

T he p rerogative o rd ers 16.2

Q u ash in g O rd e rs 16.3

P ro h ib itin g O rd e rs 16.4

Issues com m on to b o th q uash ing &c p ro h ib itin g o rders 16.5

M a n d a to ry O rd e rs 16 .6

C h a p te r 17: D ec lara tions, In junctions an d M oney an d R estitu- tio n a ry R em edies M a rtin W estgare Q C

In tro d u c tio n 17.1

The position prior to 1978 17.2

The 1977 Reforms and s 31 of the Supreme Court Act 1981 17.3

CPR Provisions relating to injunctions etc 17.4

Claims in the Upper Tribunal 17.5

Declarations, injunctions and money and restitutionary rem­edies in the context of judicial review 17.6

D ec lara tions 17.7

Nature of the declaration by way of judicial review 17.8

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Contents

Technical restrictions

Original and supervisory jurisdiction

Reliance on public law grounds of review

Relationship between the High Court and other courts

Interim declarations

Declarations affecting the Crown

Consequences of grant of a declaration

Cases unsuitable for declaration by way of judicial review

Factors affecting the grant of declarations

Advisory declarations

Giving advice at the request of the executive

Need for a proper contradictor, and negative declarations

Prematurity: lack of a defined issue and hypothetical disputes

Lack of practical significance

Flexibility of declarations and prospective declarations

In junctions

Nature of an injunction by way of judicial review

Technical restrictions

Supervisory jurisdiction

Reliance on public law grounds of review

Relationship between the High Court and other courts

Injunctions against the Crown

European Union Law

Injunctions and Parliament

Factors affecting the grant of injunctions

Practice and procedure

P roceedings co ncern ing pub lic an d m unic ipa l offices

M oney an d re s titu tio n a ry rem edies

Money and restitutionary claims and public law

Claims for money and restitution on an application for judicial review

No new cause of action

Need for a genuine primary claim to judicial review

Claims for costs of legal proceedings

Practice and procedure

17.9

17.10

17.11

17.12

17.13

17.14

17.15

17.16

17.17

17.18

17.19

17.20

17.21

17.22

17.23

17.24

17.25

17.26

17.27

17.28

17.29

17.30

17.31

17.32

17.33

17.34

17.35

17.36

17.37

17.38

17.39

17.40

17.41

17.42

X X V I

Contents

C h a p te r 18: R estric tions on the A vailability o f Jud ic ia l Review T im o th y P itt-Payne Q C

In tro d u c tio n 18.1

S tand ing 18 .2

History prior to CPR Pt 54 18.3

General principles 18.4

Procedure 18.5

Application of the ‘sufficient interest’ test 18.6

Different bases upon which claimant may assert he has standing 18.7

Personal standing 18.8

Representative standing 18.9

Standing under the Human Rights Act 1998 18.10

Standing and capacity to bring a claim 18.11

D isc re tionary restric tions on rem edies 18 .12

Delay by the claimant 18.13

Abuse of process and other conduct of the claimant 18.14

The existence of alternative remedies 18.15

Decisions of the Financial Services Authority 18.16

Decisions of the County Court 18.17

Absence of any practical purpose in granting a remedy 18.18

Effect of remedies on the defendant or on third parties 18.19

Criminal Justice and Courts Bill 18.20

C h a p te r 19: P rocedure: the Early StagesR ichard D rab b le Q C , Tim Buley, Toby Fisher an d A listair M ills

In tro d u c tio n 19.1

T h e p re-ac tio n p ro to co l fo r jud ic ia l review 19.2

The need to follow the protocol 19.3

Alternative dispute resolution 19.3A

Letter before claim 19.4

Letter of response 19.5

The relevance of the protocol to delay 19.6

B eginning the claim 19 .7

The claim form 19.8

Duty of full and frank disclosure 19.9

Documents filed with the claim form 19.10

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Contents

A cknow ledgem en t o f service

Consequences of failure to file an acknowledgement of service

Reply to acknowledgement of service

G ra n t o f perm ission

The public interest

Consideration on the papers

Renewal of the permission application

Limited grant of permission

Procedure from grant of permission onwards

R o lled up hearings

C osts in the early stages

Costs where permission, or other application, granted

Costs where permission refused

Costs following settlement/concession by defendant

Protective costs orders

Security for costs

In terim relief

P rocedure: u rgen t ap p lica tio n s fo r perm ission o r in terim relief

Out of hours applications

D isclosure

Statutory rights to access government information

C ross-exam ina tion

O th e r d irec tions an d o rders

Amendment

Expedition

Hearing of a preliminary issue

Bail

Transfer

Listing

Jud ic ia l review p ro ced u re in the U pper T ribunal

Applications to the Upper Tribunal

Transfers to and from the High Court

Jud ic ia l review p ro ce d u re in the P lann ing C o u rt

19.11

19.12

19.13

19 .14

19.15

19.16

19.17

19.18

19.18A

19.19

19.2019.21

19.22

19.22 A

19.23

19.24

19.25

19.26

19.27

19.28

19.29

19.30

19.31

19.32

19.33

19.34

19.35

19.36

19.37

19.38

19.39

19.40

19.41

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Contents

C h ap te r 20: P rocedure: H earings an d A ppeals Jo a n n e C lem ent

In tro d u c tio n 20.1

Im m ediate ly before the hearin g 20 .2

N o h earing 20.3

A spects o f a hearing : general 20 .4

A spects o f a hearing: open justice 20.5

A spects o f a hearing : judgm en ts 20 .6

T ransfer o f p roceedings 20 .7

Evidence 20 .8

Relevance and admissibility 20.9

Disclosure and cross examination 20.10

‘Supplementing’ the reasons for a decision 20.11

Use of Parliamentary materials: the rule in Pepper v Hart 20.12

Expert evidence 20.13

Precedent 20 .14

A ppeals 20 .15

Appeals at the permission stage 20.16

Appeals against interim remedies 20.17

Parties to an appeal 20.18

Appeals following a final determination 20.19

Permission to appeal 20.20

C osts 20.21

Costs at the permission stage 20.22

The exercise of the discretion generally 20.23

Costs protection: public interest litigation 20.24

Protected Costs Orders: Proposals for Reform 20.25

Costs: interested parties 20.26

Costs: defendants who do not appear 20.27

Costs orders against third parties 20.28

Costs against non-parties 20.29

Costs against publicly-funded parties 20.30

Costs in discontinued or compromised claims 20.31

Wasted costs 20.32

C h ap te r 21: D evo lu tion

xxix

Contents

N o rth e rn Ire land: G o rd o n A n th o n y ; S co tland : C hris H im s- w o rth ; W ales: M r Ju stice Lewis an d T h e Rt. H o n . L ord Justice L loyd Jones

A im o f th is ch a p te r

N o rth e rn Ire land

Introduction

The operation of the Northern Ireland Act 1998

Judicial review

Devolution issues

The procedural regime

Experience in relation to devolution issues

Conclusion

Jud ic ia l review an d d ev o lu tio n in S co tland

Devolution issues

Special procedural provisions

Challenges in which devolution issues arise

Review of Acts of the Scottish Parliament

Legislative competence over judicial review

W ales

The Institutions

The Welsh Assembly Government

The Administrative Court in Wales

Devolution issues

Remedies

C h a p te r 22: Jud ic ia l R eview in S co tland C hris H im sw o rth

In tro d u c tio n

A pp lica tion for judicial review

S uperv iso ry ju risd ic tion o f the C o u rt o f Session an d the scope o f jud ic ia l review

M a n d a to ry to p roceed by judicial review

A lte rna tive s ta tu to ry rem edies an d the s ta tu to ry exclusion o f jud ic ia l review

S tand ing to app ly for judicial review

M o ra , ta c itu rn ity an d acquiescence

G enera l pow ers o f the co u rt

21.1

21.2

21.3

21.4

21.5

21.6

2 1 . 7

21.8

21.10 21.11

21.12

21.13

2 1 . 1 4

21 . 15

2 1 .1 6

2 1 . 1 7

21.18

2 1 . 1 9

21.20

21.21

22.1

22.2

22.3

22 .4

22 .5

22.6

2 2 .7

22.8

X X X

Index

Contents

G ro u n d s o f judicial review 22 .9

Similarity of general principles 22.10

Illegality 22.11

Excess of jurisdiction 22.12

Irrationality 22.13

Irrationality and delegated legislation 22.14

Disproportionality 22.15

Procedural impropriety 22.16

Legitimate expectation 22.17

Incompatibility with Convention rights 22.18

R em edies in jud ic ia l review 22 .1 9

P rocedure 2 2 .2 0

xxxi