Judicial review of administrative action and government liability

1378 Pages·2017·11.277 MB·English

by  Matthew Groves, (Law teacher) Greg Weeks, Mark I. Aronson

Judicial Review of
Administrative Action and
Government Liability
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Judicial Review of
Administrative Action and
Government Liability
MARK ARONSON
BJuris,LLB(Hons)(Monash),DPhil(Oxon)
Solicitor (NSW)
Emeritus Professor of Law
University of New SouthWales
MATTHEW GROVES
BA,LLB(Hons),PhD(Monash)
Barrister and Solicitor (Vic)
Professor of Public Law
LaTrobe University
GREG WEEKS
BA(Sydney),MBus(UTS),LLB(UNSW),PhD(UNSW)
Solicitor (NSW)
Senior Lecturer
Australian National University
SIXTH EDITION
LAWBOOK CO. 2017
PublishedinSydneyby
ThomsonReuters(Professional)AustraliaLimited
ABN64058914668
19HarrisStreet,Pyrmont,NSW
Firstedition 1996 Fourthedition 2009
Secondedition 2000 Fifthedition 2013
Thirdedition 2004
NationalLibraryofAustralia
Cataloguing-in-Publicationentry
Creator:Aronson,Mark(MarkI),author.
Title:Judicialreviewofadministrativeactionandgovernmentliability/
Mark Aronson, Matthew Groves, Greg Weeks.
Edition: Sixth edition.
ISBN: 9780455500089 (hardback)
ISBN: 9780455238241 (paperback)
Notes: Includes index.
Subjects: Judicial review of administrative acts—Australia.
Governmentliability—Australia.
OtherCreators/Contributors:
Groves,Matthew,author.
Weeks,Greg(Lawteacher),author.
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Preface
This book has a very long history. Wolfgang Friedmann wrote Principles of
AustralianAdministrativeLawforMelbourneUniversityPressin1950.Itwas
only118pageslong.TheLawBookCompanytookoverthattitleforthenext
fiveeditions.Thattitlestoppedin1985withthesixthedition,whichranto516
pages. Its authors had also changed, with Harry Whitmore co-authoring the
third (1966) and fourth (1971) editions, and going solo on the fifth edition in
1980. By then, Harry had enlisted MarkAronson to co-author a separate and
morenarrowlyfocusedtitleforLawBookCo,namely,ReviewofAdministrative
Action (1978). With considerable new material and rewriting of existing
material,the1978bookwasreplacedbya1987bookofthesametitlebyMark
AronsonandNicolaFranklin.Somuchofitwasnewthattheauthorschosenot
to call it a second edition. Focus and content changed again, with the
publication in 1996 of the first edition of Judicial Review of Administrative
Action, which was the first Australian book to focus exclusively on judicial
review of administrative action. There was no transposition of material from
thePrinciplesbooktotheReviewbook,butonecanstillfindsomeslighttraces
ofthe1978workintheremedieschaptersofthepresentwork,whichnowhas
aslightlyexpandedtitletoreflectitsexpandedscope.Wenowhaveanentirely
newchapteraddressingthepeculiarlypubliclawaspectsofgovernmentliability
in tort, contract and equity. We have also re-arranged the material on judicial
review’s remedies, to consolidate into a single chapter our discussion of the
remedial discretions. Aside from those changes, the present work’s subject
matterandlayoutwillbelargelyfamiliar,andwehavethereforechosentocall
thisoursixthedition.
Mark Aronson and Bruce Dyer wrote the first and second editions of the
present work. Matthew Groves joined them for the third and subsequent
editions,whilstBruce’slastcontributionwastothefourthedition.GregWeeks
hasnowjoinedtheteamwithMarkandMatthew.
The fifth edition was current to the end of July 2012. We have attempted to
make this edition current to the end of July 2016. With our publisher’s usual
forbearance,wehavemanagedtostretchthisslightlytonotesomeofthemore
importantdecisionsordevelopmentsinthefollowingcoupleofmonths.
We commit to writing a new edition only when we believe it to be necessary.
Since the cut-off point of our last edition, there have been some major
developments. Some of the grounds of review have become noticeably more
fluid. A more holistic approach to statutory interpretation is also producing
caseswhosebasesforreviewcannolongerbeeasilypigeon-holedintothemore
traditional “grounds”. Migration law continues to generate judicial reactions
to continual legislative amendments. Other fields such as construction law,
environmental law, pension and benefit entitlements, and anti-corruption
agencieshavealsogeneratednoticeabledevelopments.Ourdecisiontowritean
entirely new chapter on government liability was prompted by a number of
Preface
factors. It “fits” with the rest of the book, of course, and we also believe that
these are topics that do not properly “belong” entirely to either private or
publiclawyers.
Bruce Dyer wrote two of the natural justice chapters (7 and 8) in the first and
second editions, whilst Mark Aronson wrote the remaining chapters. Bruce
retained primary responsibility for Chapter 7 in the third and fourth editions,
althoughMatthewGrovesalsoassumedanactiveroleforthatchapterinthose
editions. For the third and fourth editions, Matthew also took over Chapters
8–9, 11, and 14, whilst Mark retained responsibility for Chapters 1–6, 10,
12–13,and15–17.MatthewassumedprimaryresponsibilityforChapters7–9,
11,and14,whilstMarkwrotetheremainderforthefifthedition.Forthis,the
sixth edition, a new batting order prevails. Mark wrote Chapters 1–6, 10, 18,
and the “tort” parts of Chapter 19. Greg Weeks wrote the remainder of
Chapter 19, and Chapters 12–13, 15–16, and 17. Matthew wrote the
remainingchapters.
Asever,weareindebtedtoalargenumberoffriends,colleaguesandassociates.
TheLawFacultiesofMonash(Matthew)andUNSW(MarkandGreg)deserve
specialmentionfortheirgeneroussupportintermsoftheprovisionofaccessto
electronic databases and research facilities. Both Matthew and Greg will have
moved, to La Trobe and theANU respectively, by the time this book goes to
print, but it is entirely appropriate to record where their contributions were
madebeforemoving.
Wehavereceivedhelpfromalargenumberoffriendsandcolleagues,bothhere
and abroad. Their help ranged from the invaluable comment or reference to
judgmentsorarticlesthatwehadoverlooked,tolengthydiscussionswithuson
variousaspectsoftheworkordevelopmentsgermanetoit.Thesethanksgoin
particularto:JohnAllison,StephenArgument,KitBarker,JohnBasten,Justine
Bell-James,JaninaBoughey,PeterCane,PaulCraig,RobinCreyke,JimDavis,
SimoneDegeling,BruceDyer,MarkElliott,DavidFeldman,ArthurGlass,Leah
Grolman, Carol Harlow, Deborah Healey, Grant Hooper, Jessica Hudson,
Martin Krygier, Janet McLean, John McMillan, Keith Mason, Dan Meagher,
Dave Mullan, Linda Pearson, Tom Poole, Allan Robertson, Theunis Roux,
NickSeddon,AlexSteele,JasonVaruhas,andHannaWilberg.
Ourbiggestdebtsareasevertoourfamiliesandpartners:Linda,LisaandJack
Aronson;IanCopland;andRachael,EmilyandJamesWeeks.
Finally, we would like to thank our publishers. Paul Gye encouraged and
oversaw the development of this edition, and was perhaps the catalyst for our
decision to include a chapter on government liability. And Corina Brooks
remains the best (and hardest working) editor that any author could possibly
want.
MARKARONSON
MATTHEWGROVES
GREGWEEKS
Sydney,MelbourneandCanberra
December2016
vi
Table of Contents
Preface....................................................................................................................... v
Table of Cases.......................................................................................................... ix
Table of Statutes..................................................................................................... clv
1 Introduction..................................................................................................... 1
2 Judicial Power to Engage in Judicial Review........................................... 27
3 The Scope and Nature of Judicial Review............................................... 115
4 Errors of Law and Fact............................................................................. 195
5 The Irrationality Grounds of Review....................................................... 279
6 Illegal Outcomes andActing Without Power.......................................... 335
7 Procedural Fairness: The Scope of the Duty...........................................397
8 The Hearing Rule........................................................................................ 501
9 The Rule against Bias................................................................................. 643
10 The Results of Establishing the Grounds of Judicial Review............... 731
11 Standing to Sue............................................................................................ 769
12 Certiorari and Prohibition......................................................................... 841
13 Orders to Perform Duties.......................................................................... 873
14 Habeas Corpus............................................................................................ 903
15 Declarations..................................................................................................951
16 Injunctions....................................................................................................985
17 Remedial Discretion.................................................................................. 1013
TableofContents
18 Statutory Restriction of Review.............................................................. 1053
19 Government Liability................................................................................1085
Index of Cited Authors........................................................................................ 1179
Index.................................................................................................................... 1189
viii
Table of Cases
A
AvCorruptionandCrimeCommissioner(2013)306ALR491.......................... 6.430
AvHMTreasury[2010]2AC534..................................................................... 12.30
AvIndependentCommissionAgainstCorruption(2014)88NSWLR
240.................................................................................................. 18.240,18.290
AvMarsh(1995)38ALD566............................................................................ 8.180
AvNewSouthWales(2007)230CLR500..............................................2.20,10.130
AvPelekanakis(1999)91FCR70......................................................... 6.500,19.400
AvSecretaryofStatefortheHomeDepartment(BelmarshDetention
Case)[2005]2AC68................................................................... 3.60,4.50,14.10
AvUnitedKingdom(2009)49EHRR625........................................................... 7.50
ASchoolvHREOC(1998)51ALD102............................................................. 8.280
ASolicitor,Re(1938)55WN(NSW)110........................................................... 8.400
ASolicitor,Re[1953]StRQd149....................................................................18.250
ATeamDismondHeadquartersPtyLtdvMainRoadPropertyGroup
PtyLtd(2008)25VR189.............................................................................. 8.440
AAvSSHD[2007]EWCACiv1040................................................................... 6.610
AAPtyLtdvAustralianCrimeCommission(2005)219ALR666...................... 6.300
AAV15vMinisterforImmigrationandBorderProtection(2015)230
FCR454................................................................................................ 8.150,9.60
ABvDirectorofPublicProsecutions(NSW)[2014]NSWCA122...........4.200,4.210,
12.230
ABvLewis[1980]VR151....................................................................... 2.50,11.270
ABvMagistrates’Court(Vic)[2011]VSC61................................................... 10.200
ABvMinisterforImmigrationandCitizenship(2007)96ALD53..................... 3.270
ABOxfordColdStorageCoPtyLtdvArnott(2005)11VR298.......................... 6.90
ABPtyLtdvAustralianCrimeCommission(2009)175FCR296.......................6.370
ABCvRedmore(1989)166CLR454............................................................... 19.110
ACCC............................. seealsoAustralianCompetitionandConsumerCommission
ACCCvOceanaCommercialPtyLtd(2004)139FCR316................... 11.70,11.200
ACCCvSamtonHoldingsPtyLtd[2000]FCA1201.......................................... 9.310
ACN005057349PtyLtdvCommissionerofStateRevenue[2015]
VSC76......................................................................................................... 18.240
ACN005057349PtyLtdvCommissionerofStateRevenue[2015]
VSCA332............................................................................. 13.70,13.110,19.650
ACN078272867PtyLtd(inliq)vDeputyCommissionerofTaxation
(2011)86ALJR4............................................................................................11.10
ACRTradingPtyLtdvFat-selPtyLtd(1987)11NSWLR67............................. 17.30
ACSvAnderson[1974]2NSWLR482............................................................. 15.190
ACSvAnderson[1975]1NSWLR212............................................................. 15.190
ACTHealthAuthorityvBerkeleyCleaningGroupPtyLtd(1985)7
FCR575........................................................................................................... 2.30
ACTEWCorpLtdvPangallo(2002)127FCR1...............................................17.110
ACTewAGLDistributionvAustralianEnergyRegulator(2011)195
FCR142......................................................................................................... 6.570
AEG15vMinisterforImmigrationandBorderProtection(2015)230
FCR465................................................................................................ 8.150,9.60
AKFvMinisterforImmigrationandMulticulturalandIndigenous
Affairs(2003)130FCR210........................................................................... 5.490
AKJvCommissionerofPoliceoftheMetropolis[2014]1WLR285................ 19.760
ix
TableofCases
AKJvCommissionerofPoliceoftheMetropolis[2015]1WLR494................ 19.760
ALASchechterPoultryCorporationvUnitedStates295US495(1935)............. 3.370
ALA15vMinisterforImmigrationandBorderProtection[2016]
FCAFC30............................................................................................. 9.60,9.250
AMACSUvErgonEnergyCorpLtd(2005)149IR35...................................... 18.270
AMF15vMinisterforImmigrationandBorderProtection[2016]
FCAFC68...................................................................................................... 8.320
AMTHelicoptersPtyLtdvBrisbaneCityCouncil(2000)107LGERA
84................................................................................................................... 7.410
ANZBankingGroupLtdvKonza(2012)206FCR450..................................... 6.380
APLALtdvLegalServicesCommissioner(NSW)(2005)224CLR322............ 17.190
ASvMinisterforImmigrationandBorderProtection[2016]VSCA206...........19.400
ASICvPlymin(No3)[2002]VSC358................................................................7.320
ATP15vMinisterforImmigrationandBorderProtection[2016]
FCAFC53...................................................................................................... 8.180
AVSGroupofCompaniesPtyLtdvCommissionerofPolice[2011]
HCATrans239................................................................................... 8.220,8.330
AWBLtdvCole(2006)152FCR382........................................... 2.240,2.440,2.630
AWBLtdvCole(No2)(2006)233ALR453............................15.20,17.160,17.220
AXAGeneralInsuranceLtdvHMAdvocate[2012]1AC868...........1.60,3.30,4.50,
11.110,18.20
AXQ15vMinisterforImmigrationandBorderProtection[2016]
FCAFC73................................................................................ 9.180,9.220,9.240
AYHTvMedicalBoardofSouthAustralia(2000)77SASR148..............7.310,7.320
AZAADvMinisterforImmigrationandCitizenship(2010)189FCR
494................................................................................................................. 8.190
AafjesvKearney(1976)180CLR199.......................................... 4.100,4.120,4.260
AalavMinisterforImmigrationandMulticulturalAffairs[2002]
FCAFC204.................................................................................................... 4.680
AbacusFundsManagementLtdvDavenport[2003]NSWSC935........... 4.270,18.80
AbbasivSecretaryofStateforForeignandCommonwealthAffairs
[2002]EWCACiv1598................................................................... 14.100,14.110
AbbottvSullivan[1952]1KB189......................................................................8.150
AbebevCommonwealth(1999)197CLR510...........2.10,2.90,2.140,2.170,2.190,
2.230,4.770,4.810,5.80,8.40,8.240,9.400,10.280,10.350,17.90,17.100,18.40,
18.50
AboriginalLandCouncil(NSW)vAboriginalandTorresStraitIsland
Commission(1995)59FCR369......................................................... 2.240,6.590
AboriginalLandCouncil(NSW)vAboriginalandTorresStraitIsland
Commission(unreported,FedCt,HillJ,30Aug1995).................................. 2.160
AboriginalLegalServiceLtdvAustralianSecuritiesCommission(1996)
45ALD119.............................................................................. 8.180,8.190,8.230
AboriginalLegalServiceLtdvAustralianSecuritiesCommission(No2)
(1996)44ALD509.................................................................. 8.180,8.190,8.230
AboriginalLegalServiceLtdvMinisterforAboriginalandTorresStrait
IslanderAffairs(1996)69FCR565................................................................ 5.370
AboriginalSacredSitesProtectionAuthorityvMaurice(1986)65ALR
247........................................................................................................ 8.30,8.250
AbrielvAustralianGuaranteeCorporation[2001]FCA165............................... 7.380
AbsolonvNSWTechnicalandFurtherEducationCommission[1999]
NSWCA311................................................................................................... 4.360
AbujoudehvMinisterforImmigrationandMulticulturalAffairs(2001)
115FCR179.................................................................................................. 8.270
AcademicSalariesTribunal,Re;ExparteFederationofAustralian
UniversityStaffAssociations(1985)5FCR386..............................................12.20
AccessforAllAlliance(HerveyBay)IncvHerveyBayCityCouncil
(2007)162FCR313............................................................... 11.20,11.30,11.120
Ackland,Re;ExparteLove(1989)1WAR562................................................ 12.120
AckroydvWhitehouse(1985)2NSWLR239.......................................... 7.340,7.360
x