Constitutional andAdministrative LawText with Materials

Second Edition

David PollardChevalier des Palmes Academiques,Faculty of Law,The University of Leicester

Neil ParpworthDe Montfort University, Leicester

David Hughes FRSAProfessor of Housing and Planning Law,De Montfort University, Leicester

ButterworthsLondon, Edinburgh and Dublin1997

Contents

Preface vAcknowledgments viiTable of statutes xxiiiList of cases xxxi

CHAPTER 1

Constitutional and administrative law: nature, sources and history 1

1 THE NATURE OF CONSTITUTIONAL AND ADMINISTRATIVE LAW 12 THE SOURCES OF CONSTITUTIONAL AND ADMINISTRATIVE LAW 23 THE HISTORY AND NATURE OF BRITISH CONSTITUTIONAL AND

ADMINISTRATIVE LAW 3(a) The Medieval origins 3(b) The crisis of the seventeenth century 7(c) The slow decline of the personal power of the monarch 11(d) Reform and the emergence of the modern constitution 12(e) New roles for government 12

Employment protection 14Housing 15Environmental protection 15Income maintenance 15Education 16Health and social services 16

(f) The modern constitution 17(i) The position of the monarch 17(ii) A democratic deficit 20(Hi) Ever more opportunities for conflict between individuals and the state 23

4 CONSTITUTIONAL LAW AND CONSTITUTIONAL PRINCIPLES 25

(a) The rule of law 25(b) The separation of powers 27

Judicial independence: some pros and cons 28(c) Sovereignty-principle or rule? 29

The traditional view's historical development 31A 'new'view of sovereignty 32

Contents

Substantive limits to Parliament's power 33A principle governing relationships 34

FURTHER READING 36

DOCUMENTS 37

[A1] MagnaCarta(1297) 37[A2] Revocation of the New Ordinances: Revocatio Novarum

Ordinationum(1322) 37[A3] The Laws in Wales Act 1535 38[A4] Petition of Right (162 7) 38[A5] Coronation Oath Act (1688) 40[A6] The Bill of Rights (1688) 41[A7] Crown and Parliament Recognition Act (1689) 44[A8] The Act of Settlement (1700) 45[A9] Union with Scotland Act (1706) 45[A10] Septennial Act 1715 49[A11] Royal Marriages Act 1772 50[A12] Union with Ireland Act 1800 50[A13] Accession Declaration Act 1910 52[A14] Government of Ireland Act 1920 52[A15] Royal and Parliamentary Titles Act 1927 53[A16] Regency Act 1937 53[A17] Ireland Act 1949 55[A18] Royal Titles Act 1953 55

[A19] Northern Ireland (Temporary Provisions) Act 1972 56[A20] Northern Ireland Constitution Act 1973 56[A21] Duport Steels Ltd v Sirs 56[A22] R v Socialist Worker Printers and Publishers Ltd, ex p Attorney-General 59[A23] Attorney-General v Leveller Magazine Ltd 61[A24] R v Malvern Justices, ex p Evans; R v Evesham Justices,

ex p McDonagh 65[A25] W Bagehot The English Constitution 68[A26] The Royal Commission on the Constitution 1969-73 69[A27] Professor David Beetham Democratic Audit 74[A28] The Prince's Case 81[A29] Dr Bonham's Case 81[A30] Day v Savadge 81[A31 ] City of London v Wood 81[A32] Ex p Canon Selwyn 82[A33] McCormick v Lord Advocate 82[A34] Gibson v Lord Advocate 84[A35] Sillars v Smith 85

CHAPTER 2

The royal prerogative 87

THE PREROGATIVE AND THE CROWN IN COURT 93

Contents

CROWN LIABILITY AS AN EMPLOYER 93GENERAL CROWN CONTRACTUAL LIABILITY 93LIABILITY IN TORT 94THE CROWN AND THE GIVING AND WITHHOLDING OF EVIDENCE 95

(a) Are ministers bound to claim PII? 98(b) Do Crown servants enjoy special privileges with regard to contempt of

court? 99THE PERSONAL PREROGATIVES 101

(a) Other members of the Royal Family 103(b) The'reserve powers'of the monarch 104(c) Refusal of the royal assent to legislation 104(d) Dismissing ministers 105(e) Dissolving Parliament 105(f) The appointment of ministers 106

FURTHER READING 108

DOCUMENTS 109

[B1 ] The Case of Proclamations 109[B2] The Zamora 109[B3] A-Gv Brown 110[B4] A-G v De Keyser's Royal Hotel Ltd 111[B5] A-G v Wilts United Dairies Ltd 113[B6] Bombay Province v Bombay Municipal Corpn 113[B7J Burmah Oil Co Ltd v Lord Advocate 114[B8] R v Secretary of State for the Home Department, ex p Northumbria

Police Authority 116[B9] Lord Advocate v Dumbarton District Council 121[B10] Council of Civil Service Unions v Minister for the Civil Service 123[BIT] R v Secretary of State for the Home Department, ex p Ruddock 131[B12] R v Secretary of State for Foreign and Commonwealth Affairs,

ex p Everett 134[B13] Churchward vR 137[B14] Mitchell vR 139[B15] LeamanvR 139[B16] Rederiaktiebolaget Amphitrite v R 140[B17] New South Wales v Bardolph 141[B18] Robertson v Minister of Pensions 142[B19] Crown Lands Comrs v Page 143[B20] Conway v Rimmer 144[B21] Burmah Oil Co Ltd v Bank of England 146[B22] Air Canada v Secretary of State for Trade 149[B23] Pearce v Secretary of State for Defence 153[B24] R v Lord Chancellor's Department, ex p Nangle 156[B25] Crown Proceedings Act 1947 159[B26] Crown Proceedings (Armed Forces) Act 1987 162[B27] Diplomatic Privileges Act 1964 162[B28] R v Secretary of State for the Home Department, ex p Fire Brigades

Union 165

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Contents

CHAPTER 3

The Cabinet: ministers and their responsibilities 177

1 CABINETS AND PRIME MINISTERS: CHANGING ROLES 177(a) The Cabinet in decline? 179(b) Relationships within the Cabinet 182

Westland - a most illustrative and cautionary tale 183(c) Subsequent developments 184

2 DEFEAT AND RESIGNATION, THE CONVENTIONAL UNDERSTANDING 186(a) The requirement for collective responsibility 187

Collective responsibility assessed 1883 THE INDIVIDUAL RESPONSIBILITY OF MINISTERS 189

(a) 'Resign!' 189Subsequent resignations 191

4 MINISTERS AND CIVIL SERVANTS 193(a) A new shape for Whitehall? 194

Anonymity and other issues 1965 THE FORMULATION OF POLICY 198

(a) Arms to Iraq again 199Accountability and responsibility 201

(b) A new way forward? 2026 THE FORMULATION OF LEGISLATIVE PROPOSALS 203

(a) Quasi legislation 205FURTHER READING 210

DOCUMENTS 211

[C1] A-G v Jonathan Cape Ltd 211

IC2] Report of the Committee of Privy Counsellors on Ministerial Memoirs 213[C3] Civil Servants and Ministers: Duties and Responsibilities 218[C4] The Royal Commission on the Constitution 1969-73 222[C5] Statement of Sir David Maxwell Fyfe following the Crichel Down

Affair 1954 223[C6] The Civil Service: Taking Forward Continuity and Change 225[C7] Ministers of the Crown Act 1975 231[C8] Official Secrets Act 1989 231[C9] Road Traffic Act 1988 235[C10] Town and Country Planning Act 1990 236

Department of the Environment Circular 10/95 Welsh Office Circular 31/95Appendix A 237

CHAPTER 4

Parliament: composition and privileges 2391 THE HOUSE OF LORDS 239

Reform 241

2 THE HOUSE OF COMMONS 2433 THE LAW AND CUSTOM OF PARLIAMENT 245

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Contents

Members: their business interests and their independence 246'Sleaze' 247The issue of lobbying 250

FURTHER READING 250

DOCUMENTS 252

[D1] Parliament Act 1911 252[D2] Life Peerages Act 1958 253[D3] Peerage Act 1963 253[D4] Parliament (Qualification of Women) Act 1918 254[D5] Royal Assent Act 1967 254[D6] House of Commons Disqualification Act 1975 254[D7] House of Commons (Administration) Act 1978 256[D8] Representation of the People Act 1981 257[D9] Representation of the People Act 1983 257[D10] Representation of the People Act 1985 260[D11 ] Parliamentary Constituencies Act 1986 261[D12] House of Lords Reform 263[D13] The Royal Commission on the Constitution 1969-73 269[D14] Stockdale v Hansard 270[D15] The Case of the Sheriff of Middlesex 272[D16] Bradlaugh v Gossett 273[D17] Rivlin v Bilainkin 275[D18] Fifth Report from the Committee of Privileges, Session 1956-57 276[D19] Church of Scientology of California v Johnson Smith 279[D20] First Report from the Select Committee on Procedure, Session 1988-89,

Conduct of Members in the Chamber and the Alleged Abuse ofParliamentary Privilege 280

[D21 ] Extracts from the Summary Version of the Nolan Committee's First Report onStandards in Public Life 285

[D22] The Guide to the Rules relating to the Conduct of Members 293

CHAPTER 5

Parliament: procedures and functions 314

1 DELEGATED (OR SUBORDINATE) LEGISLATION 3152 THE OVERSIGHT OF PUBLIC FINANCE 318

Reforms of financial procedures? 321If not the Commons then who... ? 322

Supplementary Parliamentary controls over expenditure 323Commons' controls over the raising of revenue 324

3 LEGISLATION 325The legislative process 326Criticisms of legislative procedure 328

4 OTHER MEANS OF PARLIAMENTARY OVERSIGHT 330Questions 330Select committees 331

XIII

Contents

Select Committees; their strengths and weaknesses 3325 ULTIMATE CONTROL OVER MINISTERS 336FURTHER READING 336

DOCUMENTS 338

[E1 ] House of Commons Manual of Procedure in the Public Business 338[E2] Exchequer and Audit Departments Act 1921 359[E3] National Audit Act 1983 360[E4] Statutory Instruments Act 1946 361[E5] Statutory Instruments Regulations 1947 363[E6] Road Traffic Act 1988 364

CHAPTER 6

The United Kingdom and the European Community and Union 365

1 THE CREATION AND DEVELOPMENT OF THE EUROPEAN COMMUNITYAND UNION 365

(a) The origins of the European Communities 365(b) The constitutional implications of economic integration 366(c) The Single European Act 368(d) The Treaty on European Union 369

2 THE EUROPEAN POLITICAL INSTITUTIONS 371(a) The European Parliament 371(b) The Council 372(c) The Commission 374

3 COMMUNITY LEGISLATION 374(a) Community competence to legislate 374(b) Secondary legislative measures 375(c) The Community legislator 376

4 THE EUROPEAN COURT OF JUSTICE 378(a) Jurisdiction 378(b) Composition 380(c) The Court of First Instance 381(d) Procedure 381

5 COMMUNITY CASE LAW 382(a) Introduction 382(b) Interpretation 383(c) Community case law 384(d) General principles of law 385(e) Constitutional law 387

6 COMMUNITY LAW AND THE MEMBER STATES 387(a) The supremacy of Community law 387(b) Enforcing Community obligations 389(c) The reference procedure 391

7 PROTECTION OF THE INDIVIDUAL 392

1 THE INCORPORATION OF COMMUNITY LAW IN THEUNITED KINGDOM 396

XIV

Contents

DOCUMENTS 401

[F1] European Community Treaty 401[F2] Case 17/74 Transocean Marine Paint Association v Commission of the

European Communities 416[F3] Case 39/72 Commission of the European Communities v

Italian Republic 418[F4] Case 128/78 Commission of the European Communities v

United Kingdom 419[F5] Case C-39/88 Commission of the European Communities

v Ireland 421[F6] Case 26/62 NV Algemene Transport-en Expeditie Onderneming van Gend &

Loos v Nederlandse administratie der belastingen 422[F7] Case 6/64 Flaminio Costa v ENEL 424[F8] Case 106/77 Amministrazione delle Finanze dello Stato v Simmenthal

SpA 425[F9] Case 9/70 Franz Grad v Finanzamt Traunstein 426[F10] Case 41/74 Yvonne van Duyn v Home Office 427[F11] Case 148/78 Pubblico Ministero vTullio Ratti 431[F12] Case 152/84 MH Marshall v Southampton and South West Hampshire Area

Health Authority (Teaching) 433[F13] Case 222/84 Marguerite Johnston v Chief Constable of the

Royal Ulster Constabulary 436[F14] Cases C-6, 9/90 Francovich, Bonifaci (and others) v

Republic of Italy 439[F15] Commission Opinion of 19 January 1972 442[F16] The European Communities Act 1972 442[F17] Customs and Excise Commissioners v Samex 444[F18] R v Plymouth Justices 444[F19] Foster v British Gas pic 447[F20] Factortame Ltd v Secretary of State for Transport 448[F21 ] Case C-213/89 R v Secretary of State for Transport, ex parte Factortame

(No 2) 452[F22] Factortame Ltd v Secretary of State for Transport (No 2) 453

CHAPTER 7

The Parliamentary Commissionerfor Administration 456

1 GOVERNMENT, ADMINISTRATION AND POLITICAL REDRESS 456

2 THE WHYATT REPORT 4573 THE PARLIAMENTARY COMMISSIONER FOR ADMINISTRATION -

INTRODUCTION 4584 JURISDICTION 4595 PROCEDURE 4626 MALADMINISTRATION 4657 MINISTERIAL RESPONSIBILITY 4698 AN APPRAISAL 470

xv

Contents

DOCUMENTS 471

[G1 ] 'The Citizen and the Administration' (the Whyatt Report) 471[G2] First Report of the Commissioner 474[G3] Report of the Commissioner on the Sachsenhausen case 476[G4] Statement of the Foreign Secretary on the Sachsenhausen case 479[G5] Report of the Select Committee on the Parliamentary Commissioner on the

Sachsenhausen case 481[G6] Report of the Select Committee on the Parliamentary Commissioner 485[G7] Report of the Commissioner 489[G8] Report of the Select Committee on the Parliamentary Commissioner 491[G9] Report of the Commissioner 492[G10] Report of the Commissioner on the Barlow Clowes case 493[G11 ] Statement by the Secretary of State for Trade and Industry 496[G12] Report of the Commissioner on the investigation of complaints against the

Child Support Agency 499[G13] Report of the Select Committee on the Parliamentary Commissioner for

Administration - The Channel Tunnel rail link and exceptional hardship 505[G14] Response to the Report from the Select Committee on the Parliamentary

Commissioner for Administration on the Channel Tunnel rail link andexceptional hardship 509

[G15] R v Parliamentary Commissioner for Administration, ex p Dyer 510[G16] Annual Report of the Commissioner for 1983 513

CHAPTER 8

The availability of judicial review 517

1 THE DEVELOPMENT OF THE JURISDICTIONS OF COURTSAND TRIBUNALS 517(a) The Court of King's Bench 517(b) The justices of the peace 517(c) The Council, the Star Chamber, and back to King's Bench 518(d) The development of remedies 519(e) The nineteenth century 520(1) The development of appellate jurisdictions 521

2 THE APPELLATE JURISDICTION 5223 THE SUPERVISORY JURISDICTION 5244 THE AVAILABILITY OF A JUDICIAL REMEDY 525

(a) Judicial remedies 525(b) Prerogative remedies 525(c) Equitable remedies 526(d) The application for judicial review 528

5 THE PRINCIPLE OF PROCEDURAL EXCLUSIVITY 5306 WHAT BODIES ARE AMENABLE TO JUDICIAL REVIEW? 5327 LOCUS STANDI 5358 STATUTORY EXCLUSION OF JUDICIAL REVIEW 537

XVI

Contents

DOCUMENTS 540

[H1] Social Security Administration Act 1992 540IH2] Social Security (Adjudication) Regulations 1995 540

[H3] Education Act 1996 542[H4] R v Birmingham City Council, ex p Ferrero Ltd 544[H5] A-G v Chaudry 546[H6] O'Reilly v Mackman 547[H7] Wandsworth London Borough Council v Winder 551[H8] R v Panel on Take-overs and Mergers, ex p Datafin pic 554[H9] Inland Revenue Commissioners v National Federation of Self-Employed ana

Small Businesses Ltd 557 , , .[HI0] R v Secretary of State for the Environment, ex p Rose Theatre Trust Co M>IH11] R v Inspectorate of Pollution, ex p Greenpeace Ltd (No 2) 563[H12] R v Medical Appeal Tribunal, ex p Gilmore 565[H13] Anisminic Ltd v Foreign Compensation Commission 566[H14] Pearlman v Keepers and Governors of Harrow School 572[H15] South East Asia Fire Bricks Sdn Bhd v Non-Metallic Mineral Products

Manufacturing Employees Union 574[H16] Smith v East Elbe RDC 575[H17] R v Secretary of State for the Environment, ex p Ostler 577

Chapter 9

Grounds for judicial review 579

1 INTRODUCTION 5792 A QUALIFIED DECISION-MAKER 580

(a) General 580(b) Delegation 581(c) Bias 582 -

3 ILLEGALITY 5834 IRRATIONALITY 584

(a) Misuse of power 585(b) Relevant and irrelevant considerations 586(c) Unreasonableness 587(d) Legitimate expectation 589(e) Proportionality 592

5 PROCEDURAL IMPROPRIETY 593(a) Statutory rules of procedure 593(b) Common law principles 594(c) A common law duty to give reasons? 596

DOCUMENTS 598

j j i 1 R v Aston University Senate, ex p Roffey 598* Local Government Act 1972 5991 Car|tona Ltd v Works Comrs 599

" 4 I Barnard v National Dock Labour Board 600

XVII

Contents

[15] R v Sussex Justices, ex p McCarthy 600[16] R v Barnsley Licensing JJ 601[I7] Metropolitan Properties v Lannon 602[I8] Hannam v Bradford City Council 603[19] R v Gough 604[110] White and Collins v Minister of Health 608[111] Ellis v Dubowski 609[112] Mills vLCC 610[113] H Lavender & Son Ltd v Minister of Housing and Local Government 611[114] R v Rotherham Licensing Justices 613[115] Stringer v Minister of Housing and Local Government 613[116] Associated Provincial Picture Houses Ltd v Wednesbury Corpn 616[117] Westminster Corpn v London and North Western Railway Co 618[118] Westminster Bank v Minister of Housing and Local Government 620[119] Secretary of State for Education v Tameside Metropolitan

Borough Council 621[120] Hall & Co Ltd v Shoreham-by-Sea UDC 623[121] RvHillingdon London Borough Council, ex p Royco Homes Ltd 623[122] Luby v Newcastle-under-Lyme Corpn 624[123] Wheeler v Leicester City Council 625[124] R v Port Talbot Borough Council, ex p Jones 628[125] R v Ministry of Defence, ex p Smith 630[126] Bradbury v Enfield London Borough Council 633[127] Agricultural, Horticultural and Forestry Industry Training Board v

Aylesbury Mushrooms Ltd 634[128] Cooper vWandsworth Board of Works 636[129] Board of Education v Rice 636[130] Ridge v Baldwin 637

[131] R v Gaming Board for Great Britain, ex p Benaim and Khaida 638[132] R v Huntingdon District Council, ex p Cowan 639[133] Lee v Department of Education and Science 641[I34] R v Deputy Industrial Injuries Comr, ex p Moore 641[135] R v Hull Prison Board of Visitors, ex pSt Germain (No 2) 642[I36] R v Barnsley Metropolitan Borough Council, ex p Hook 644[I37] R v Birmingham City Magistrates, ex p Chris Foreign Foods Ltd 646[138] Doody v Secretary of State for the Home Department 647[I39] R v Higher Education Funding Council, ex p Institute of Dental Surgery 649

CHAPTER 10

Freedom of expression 653

1 THE UNITED KINGDOM CONSTITUTION AND CIVIL LIBERTY 6532 FREEDOM OF EXPRESSION 6553 THE CONTROL OF OBSCENITY 6554 CONTEMPT OF COURT 656

DOCUMENTS 657

UU Obscene Publications Act 1959 657

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Contents

[)2] R v Calder and Boyars Ltd 658U3] R v Anderson 661[|4] DPP v Whyte 66405] DPP v Jordan 667U6] European Convention on Human Rights 670\]7] Handyside v United Kingdom 670[|8] A-G v Times Newspapers Ltd 67409] Sunday Times v United Kingdom 678010] Contempt of Court Act 1981 683011] A-G v English 684012] ReLonrhopIc 687013] A-GvHislop 692014] British Steel Corpn v Granada Television Ltd 695015] X Ltd v Morgan-Grampian (Publishers) Ltd 699

CHAPTER 11

Public order 704

1 INTRODUCTION 7042 PREVENTIVE ACTION 7063 BREACH OF THE PEACE 7084 PUBLIC ORDER ACT 1986 711

(a) Background 711(b) The offences 712(c) Riot and violent disorder 713(d) Affray 714(e) Fear or provocation of violence 715(f) Harassment, alarm or distress 717(g) Intentional harassment, alarm or distress 718(h) Processions and assemblies 718

(i) Processions 718(ii) Assemblies 721(Hi) Trespassory assemblies 721

FURTHER READING 722

DOCUMENTS 723

[K1] Hirst and Aguv Chief Constable of West Yorkshire 723[K2] BeattyvGillbanks 726[K3] Thomas v Sawkins 727[K4] Duncan v Jones 728[K5] Piddington v Bates 730[K6] RvHowell 731IK7] R v Chief Constable of the Devon and Cornwall Constabulary, ex p Central

Electricity Generating Board 733[K8] Albert v Lavin 737[K9] McLeodv Commissioner of Police of the Metropolis 738[K10] Public Order Act 1986 739

XIX

Contents

[K11 ] O'Moran v Director of Public Prosecutions; Whelan v Director of Public

Prosecutions 748[K12] Rv Jefferson 750[K13] Brutus v Cozens 753[K14] Atkin v Director of Public Prosecutions 755[K15] R v Horseferry Road Metropolitan Stipendiary Magistrate,

ex p Siadatan 756[K16] Director of Public Prosecutions v Orum 758[K17] Director of Public Prosecutions v Clarke 759

CHAPTER 12

Police powers 762

1 INTRODUCTION 7622 POLICE DISCRETION 7633 IMPLIED LICENCE TO ENTER PREMISES 7644 POLICE AND CRIMINAL EVIDENCE ACT 1984 766

(a) Background 766(b) Codes of practice 767(c) Entry and search without warrant 768(d) Entry to search for evidence following arrest 771(e) General power of seizure 773(!) Arrest 774

(i) Arrest for an arrestable offence 775(ii) General arrest conditions 776(Hi) Information to be given on arrest 777(iv) 'Assistingpolice with their enquiries' 778

5 ASSAULT ON AND WILFUL OBSTRUCTION OF THE POLICE 779FURTHER READING 782

DOCUMENTS 783

[L1 ] R v Commissioner of Police of the Metropolis, ex p Blackburn 783[L2] Lindley v Rutter 785[L3] Holgate-Mohammed v Duke 787[L4] Davis v Lisle 789[L5] Robson v Hallet 791[L6] Police and Criminal Evidence Act 1984 793[L7] RvSelf 799[L8] Director of Public Prosecutions v Hawkins 800[L9] Lewis v Chief Constable of the South Wales Constabulary 802[L10] Rice v Connolly 804[L11] Hills v Ellis 805[L12] Lewis v Cox 806[L13] Kenlin v Gardiner 808[LI 4] Donnelly v Jackman 809[L15] Bentley v Brudzinski 810[LI 6] Collins v Wilcock 812

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Contents

CHAPTER 13

European Convention on Human Rights and Fundamental Freedoms 817

1 INTRODUCTION 8172 THE INSTITUTIONS 819

(a) European Commission of Human Rights 819(b) Committee of Ministers 820(c) European Court of Human Rights 821

(i) Protocol 11 :Anew single European Court of Human Rights 823(H) Right of Individual Petition 824(Hi) Inter-state applications 826(iv) Admissibility criteria 826(v) Friendly settlements 827(vi) Doctrine of a margin of appreciation 829

3 STATUS OF THE CONVENTION IN UK LAW 8304 INCORPORATION OF THE CONVENTION INTO UK LAW 834

An alternative to incorporation 839FURTHER READING 839

DOCUMENTS 841

[M1 ] Convention for the Protection of Human Rights and FundamentalFreedoms 841

[M2] Welch v United Kingdom 845[M3] SW v United Kingdom; CR v United Kingdom 847[M4] The Republic of Ireland v The United Kingdom 849[M5] Brannigan and McBride v United Kingdom 854[M6] MalonevComr of Police of the Metropolis (No 2) 858[M7] Ahmad v Inner London Education Authority 861[M8] A-G v Guardian Newspapers Ltd 864[M9] R v Secretary of State for the Home Department, ex p Brind 866[M10] Derbyshire County Council v Times Newspapers Ltd 869

Index 875

XXI