Textbook on Administrative Law

545 Pages·2012·4.31 MB·English

by  Peter Leyland

Textbook on Administrative Law
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Textbook on
Administrative Law
Seventh Edition
Peter Leyland
Professor of Public Law, London Metropolitan University
Gordon Anthony
Professor of Public Law, Queen’s University, Belfast
1
3
Great Clarendon Street, Oxford, OX2 6DP,
United Kingdom
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© Peter Leyland and Gordon Anthony 2013
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Fourth edition 2002
Fifth edition 2005
Sixth edition 2009
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Library of Congress Control Number: 2012944037
ISBN 978–0–19–960166–0
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OUTLINE CONTENTS
1 Introduction: theory and history 1
2 Constitutional context 18
3 European Union law and administrative law 39
4 Human rights and administrative law 58
5 The modern administrative state 81
6 The ombudsman principle 125
7 Dispute resolution: tribunals and inquiries 156
8 Introduction to judicial review 178
9 Extending the reach of judicial review: the public–private divide
and the Royal prerogative 213
10 Limiting judicial review: ouster clauses and public interest immunity 236
11 Illegality I 267
12 Illegality II 288
13 Unreasonableness, irrationality, and proportionality 315
14 Equality 343
15 Legitimate expectations 353
16 Procedural impropriety I: statutory requirements 373
17 Procedural impropriety II: common law rules 384
18 Remedies in judicial review 430
19 Contracting and public bodies 447
20 Public authority liability in tort 458
21 Conclusion: administrative law facing the future 481
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DETAILED CONTENTS
Preface xiii
Table of Cases xv
Table of Legislation xxix
Glossary of Terms xxxvi
1 Introduction: theory and history 1
1.1 Introduction 1 1.5 Administrative law and the origins of
1.2 Defi nition 1 the modern state 10
1.3 Law and context 4 1.6 Conculsion towards a grievance chain
in administrative justice? 14
1.4 Red and green light perspectives 5
2 Constitutional context 18
2.1 Introduction 18 2.5 Parliamentary sovereignty and the
2.2 Parliamentary sovereignty 19 assertion of judicial authority 26
2.3 The Westminster and Whitehall 2.6 Separation of powers: nature and
models 20 implications 29
2.4 Individual ministerial responsibility 2.7 The rule of law 34
and the role of Parliament and 2.8 Conclusion 36
MPs 21
3 European Union law and administrative law 39
3.1 Introduction 39 3.3 EU law in the UK 49
3.2 EU law and national legal systems: the 3.4 Conclusion 55
obligations of membership 40
4 Human rights and administrative law 58
4.1 Introduction 58 4.4 The Human Rights Act, the ECHR,
4.2 Human rights and the common law and constitutional principle 66
pre-Human Rights Act 60 4.5 The EU Charter of Fundamental
4.3 Why give effect to the ECHR? 64 Rights 78
4.6 Conclusion 79
viii Detailed contents
5 The modern administrative state 81
5.1 Introduction 81 5.7 Police authorities 111
5.2 Powers 83 5.8 Privatisation and regulation 112
5.3 Central government 90 5.9 Citizen’s Charter to Customer Service
5.4 The National Health Service 98 Excellence 119
5.5 Non-departmental public bodies 100 5.10 Freedom of information 120
5.6 Devolution and local government 102 5.11 Conclusion 122
6 The ombudsman principle 125
6.1 Introduction 125 6.7 Open government and freedom of
6.2 Constitutional context 126 information 138
6.3 Parliamentary Ombudsman: ‘MP 6.8 The PO’s workload 139
fi lter’ or direct access 128 6.9 Investigations by the PO 141
6.4 What is maladministration? 129 6.10 The complaints industry: a
6.5 Investigatory procedures and powers proliferation of ombudsmen 147
established under the Parliamentary 6.11 Citizen’s Charter, Customer Service
Commissioner Act 1967 132 Excellence, and the quest for ‘good
6.6 Limits to the PO’s jurisdiction 136 administration’ 150
6.12 Conclusion 152
7 Dispute resolution: tribunals and inquiries 156
7.1 Introduction 156 7.6 Tribunals: conclusion 168
7.2 Courts and tribunals compared 157 7.7 Inquiries 169
7.3 Tribunal procedure and the Human 7.8 Public inquiries for special
Rights Act 1998 160 purposes 172
7.4 The Leggatt Report and the 7.9 The Inquiries Act 2005 175
establishment of a unifi ed tribunal 7.10 Conclusion 176
service 161
7.5 Appeals, judicial review, and the Cart
case 167
8 Introduction to judicial review 178
8.1 Introduction 178 8.7 Public law and private law remedies:
8.2 Governmental power 180 which procedure? 194
8.3 The supervisory/appellate 8.8 Effective alternative remedies 199
distinction 182 8.9 An arguable case 200
8.4 Statutory powers, statutory duties, 8.10 Standing 201
and discretion 184 8.11 Time limits and delay 208
8.5 The emergence of judicial 8.12 Conclusion 210
review 187
8.6 The judicial review procedure 191
Detailed contents ix
9 Extending the reach of judicial review: the public–private
divide and the Royal prerogative 213
9.1 Introduction 213 9.3 Judicial review and the prerogative
9.2 Identifying public law decisions: the powers 223
public–private divide 214 9.4 Conclusion 233
10 Limiting judicial review: ouster clauses and public
interest immunity 236
10.1 Introduction 236 10.5 Implied limits on judicial review: (II)
10.2 Ouster and time limit clauses 237 public interest immunity 251
10.3 Subjective words 247
10.4 Error of law on the face of the
record 249
11 Illegality I 267
11.1 Introduction 267 11.5 Relevant and irrelevant
11.2 The importance of statutory considerations 276
interpretation 268 11.6 Bad faith 286
11.3 Simple ultra vires 269 11.7 Conclusion 286
11.4 ‘Improper’ purpose 270
12 Illegality II 288
12.1 Introduction 288 12.5 Fettering discretion by wrongful
12.2 Fettering discretion: deciding by delegation 301
reference to a policy 289 12.6 Errors of law and errors of fact 304
12.3 Estoppel and the fettering of 12.7 Delegated (or subordinate)
discretion 296 legislation 308
12.4 Fettering discretion by contract 299 12.8 Conclusion 313
13 Unreasonableness, irrationality, and proportionality 315
13.1 Introduction 315 13.5 Proportionality 325
13.2 Wednesbury unreasonableness 13.6 The Human Rights Act and
and general unreasonableness proportionality 329
distinguished 316 13.7 Wednesbury and proportionality
13.3 History of unreasonableness 319 outside the Human Rights Act 339
13.4 Irrationality: Lord Diplock’s 13.8 Conclusion 340
reformulation in GCHQ 323