Judicial Review: Law & Practice

Judicial Review: Law & Practice Second Edition General Editors The Hon Mrs Justice Patterson DBE Sam Karim Barrister, Kings Chambers Assistant Editor Justin Leslie Barrister and Assistant Parliamentary Counsel

Published by Jordan Publishing Limited 21 St Thomas Street Bristol BS1 6JS Whilst the publishers and the author have taken every care in preparing the material included in this work, any statements made as to the legal or other implications of any transaction, any particular method of litigation or any kind of compensation claim are made in good faith purely for general guidance and cannot be regarded as a substitute for professional advice. Consequently, no liability can be accepted for loss or expense incurred as a result of relying in particular circumstances on statements made in this work. Jordan Publishing Limited 2015 All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any way or by any means, including photocopying or recording, without the written permission of the copyright holder, application for which should be addressed to the publisher. Crown Copyright material is reproduced with kind permission of the Controller of Her Majesty s Stationery Office. British Library Cataloguing-in-Publication Data A catalogue record for this book is available from the British Library. ISBN 978 1 84661 914 4 Typeset by Letterpart Limited, Caterham on the Hill, Surrey CR3 5XL Printed in Great Britain by Hobbs the Printers Limited, Totton, Hampshire SO40 3WK

CONTENTS Contributors Preface Introduction Table of Cases Table of Statutes Table of Statutory Instruments v vii ix xxxiii cxiii cxxiii Part 1 General Principles Chapter 1 Grounds of Judicial Review 3 Introduction 3 Classifying the principles of judicial review 3 Structure of this chapter 5 Category 1: Irrationality 5 Unreasonableness 5 Principle 5 Key case 5 Commentary 5 Recent examples 9 Proportionality 10 Principle 10 Key cases 10 Commentary 10 Recent examples 17 Bad faith/improper motive 18 Principle 18 Key case 18 Explanation 18 Recent examples 19 Category 2: Illegality 20 Ultra vires 21 Principle 21 Key cases 21 Explanation 21 Recent examples 25 Unlawful delegation of powers 25 Principle 25

xx Judicial Review: Law and Practice Key case 25 Explanation 26 Recent examples 27 Fettering discretion 28 Principle 28 Key case 28 Explanation 28 Error of fact 29 Principle 29 Key cases 29 Explanation 29 Recent examples 31 Relevant/irrelevant considerations 32 Principle 32 Key case 32 Explanation 32 Recent example 33 Frustrating legislative purpose 34 Principle 34 Key case 34 Explanation 34 Recent examples 35 Sufficient inquiry 35 Principle 35 Key case 35 Explanation 36 Policy challenges 36 Principle 36 Key case 37 Explanation 37 Category 3: Procedural impropriety 38 Procedural fairness 39 Principle 39 Key case 39 Explanation 39 Bias 43 Principle 43 Key cases 43 Explanation 43 Recent examples 44 Legitimate expectations 45 Principle 45 Key cases 45 Explanation 45 Recent examples 47 Consultation 47 Principle 47 Key cases 47

Contents xxi Explanation 48 Recent examples 49 Reasons 50 Principle 50 Key case 50 Explanation 50 Recent examples 53 Category 4: Rights and freedoms 53 ECHR rights 54 Principle 54 Key provision 54 Explanation 54 Common law rights 64 Principle 64 Key cases 65 Explanation 65 EU law rights 68 Principle 68 Key case 68 Explanation 68 Chapter 2 Remedies 73 Introduction 73 Interim relief 73 Procedure 73 Actions against the Crown 74 Principles on interim relief 74 Cross undertaking in damages 75 Injunctions 75 The European dimension 77 Interim declarations 77 Stays 77 Bail 77 The prerogative remedies: mandatory, prohibiting and quashing orders 78 Mandatory order 78 Prohibiting order 81 Examples of when a prohibiting order has been granted 81 Earliest time for application 82 Quashing orders 82 Severance 85 Restrictions on quashing orders 86 Examples of where quashing orders have been granted 87 Injunctions to restrain a person from acting in office 88 Declarations and injunctions 88 Injunction 88 Declarations 89 Orders against the Crown 91

xxii Judicial Review: Law and Practice Damages and restitution 92 Damages 92 Restitution 94 HRA damages 96 Discretion 97 Conduct of the claimant 97 Delay 98 The role of mediation and other alternative remedies in judicial review 102 Mediation 103 Introduction 103 Support for mediation 104 General 104 The pre-action protocol for judicial review 107 The view in The Judge Over Your Shoulder 107 Suggestions that courts and ombudsman should have power to require mediation 108 Particular advantages in public law 108 Objections to the use of mediation in public law 109 It is wrong to consider public law as a single category 109 Duties and discretions 110 Not just two parties but the public as well 110 Authority to settle 111 Other tailor-made processes/remedies 112 Summary 112 Other alternative remedies 113 Tribunals 113 Inquiries 113 Internal complaints systems 114 Standards 115 Audit 115 Ombudsmen 117 Chapter 3 Practice and Procedure 121 Judicial review in the administrative court 121 Pre-Action Protocol 121 Pre-issue considerations 122 Standing 123 Duty of candour/disclosure 123 Time limits for bringing a claim 125 Alternative remedy 126 Academic challenges 127 The claim form and service 128 Issuing the claim 128 Service 129 Acknowledgement of service 130 Urgent cases 131

Contents xxiii Interim orders 132 Directions 132 Interim relief 133 Permission 133 Renewal of the application for permission 135 The oral hearing 135 Appeal on permission 135 Substantive hearing 136 Additional grounds 137 Skeleton arguments 137 The hearing 138 Conversion to a common law claim 138 Consent orders 139 Appeals 139 Costs 141 The permission stage 141 Substantive hearing 141 Protective costs order 144 Chapter 4 The Tribunal System 147 Introduction 147 The role of the tribunal system 147 Background 147 Legislation 148 Review of decisions 150 Appeals to the Upper Tribunal 152 Judicial Review in the UT 153 Judicial review of UT as a superior court of record 154 The Tribunal system: an overview of appeals 155 Onward Appeals pre and post transfer 155 First-tier Tribunal 155 Upper Tribunal 159 Part 2 Specific Areas Chapter 5 Planning and Environment 163 Introduction 163 The Planning Court 163 Other amendments 165 Statutory framework 166 Planning decisions 166 Compulsory purchase decisions 170 Judicial review proceedings 171 The influence of EC law 171 Sufficient interest/person aggrieved 174 The need to be prompt and avoid undue delay 175

xxiv Judicial Review: Law and Practice Grounds of review 175 Ministerial statements and policy 177 Error of law 180 Duty to give reasons for the grant of planning permission 180 The interpretation of planning policy 180 EC-based challenges 182 Irrationality 183 Procedural unfairness 185 Protective costs orders 188 Chapter 6 Community Care 191 Preface 191 Introduction 192 Part1 anoverview of community care law 193 The community care decision-making process 193 The statutory framework 195 The assessment 195 Eligibility 198 The decision and care planning 200 Services 201 Direct payments 205 Personalisation and independent living 206 Part 2 specific and significant areas of community care law 209 Children 209 Statutory framework 209 The assessment process 214 Leaving care 215 Eligible and relevant child 216 Former relevant child 216 Young people over 16 and qualifying children 217 Guidance 217 Leaving care decisions and judicial review 218 Carers 221 The social care and healthcare overlap 222 Cooperation 222 Division between social care and medical care services 223 Can a local authority provide healthcare provision? 224 Section 117 after care service 224 Analysis 228 Community care support for asylum seekers and migrants 228 Statutory framework 229 Section 21 support 230 Unaccompanied asylum-seeking children 231 Further representations by failed asylum seekers 235 Private care homes 237 Scope of judicial review 237 Rates disputes 238

Contents xxv Part 3 common examples of judicial review challenges of community care decisions 239 Chapter 7 Housing 247 Introduction 247 The role of public law in social housing 247 Jurisdiction 249 Judicial attitude 252 Homelessness 253 Exceptional circumstances 253 Decisions outside the statutory code 255 Interim accommodation 255 Challenge to policy 256 Statutory appeal ineffective 257 Refusal to extend time to review 258 Local connection 258 Refusal to entertain a homelessness application 258 Advice and assistance 259 Pre-emptive strikes 259 Allocation 260 Introductory tenancies 263 Procedure 265 Interim relief 265 Costs 267 Chapter 8 Mental Health 271 Introduction 271 Public law and the Mental Health Act 1983 272 Legal review of the lawfulness of detention 277 The hospital managers and nearest relatives 278 Treatment and the continuing duty to review 281 Treatment in the community 283 The Tribunal 285 The Upper Tribunal 287 The First-tier Tribunal 288 The Mental Capacity Act and the Court of Protection 293 Conclusion 296 Chapter 9 Criminal Law 299 Introduction 299 Whether the matter is a criminal cause or matter 299 The importance of knowing whether a matter is a criminal cause or matter 299 The decision that determines whether a matter is a criminal cause or matter 299

xxvi Judicial Review: Law and Practice Determining whether a matter is a criminal cause or matter 300 Decisions that cannot be challenged 302 Interim decisions 302 Decisions of the Crown Court 304 Grounds for applying for judicial review 308 Decisions of prosecutors 308 Legitimate expectation 310 Alternative remedies 311 Appeal to the Crown Court 311 Appeal by way of case stated 311 Procedure 313 Bail as a form of interim relief 313 Role of the defendant 315 Relief at the conclusion of proceedings 315 Costs against magistrates courts 316 Costs from central funds 317 Appeal to the Supreme Court 317 Concluding remarks 318 Chapter 10 Prison Law 319 Introduction 319 Regime 320 Categorisation and recategorisation 320 Allocation 321 Mother and baby units 322 Vulnerable prisoner units and segregation 322 Close supervision centres 323 Sentence planning 323 Offending behaviour programmes 323 Dangerous and severe personality disorder units 325 Reasonable adjustments 325 Living conditions 326 Property 326 Association 326 Incentives and earned privileges 326 Correspondence and visits 327 Reasonable adjustments 329 Health and social care 329 Overview 329 Mental health transfers 329 Release and recall 330 Licence and recall 330 The Parole Board 331 Home detention curfew 333 Early removal scheme 334 Tariff expired removal scheme 335

Contents xxvii Prison discipline 335 The prison disciplinary system 335 Governor adjudications 336 Independent adjudications 337 Challenging findings of guilt 337 Complaints processes 339 The internal complaints system 339 The Prison and Probation Ombudsman 340 Investigations/Failures to investigate 341 Use of force 341 Assaults 343 Deaths 344 Near deaths 346 Litigation practicalities 348 Exhausting alternative remedies 348 Identifying the correct defendant 349 Public funding 349 Chapter 11 Education 351 Introduction 351 Overview 351 The legislative framework 351 Categorisation of schools and colleges 352 State schools 352 Academies and free schools 354 Independent schools 355 Further education 355 Higher education 356 Substantive areas of challenge 357 School organisation 357 School admissions 359 Introduction 359 The legal framework 359 Co-ordination of school admissions 359 The schools adjudicator 361 Parental preference, admission numbers and oversubscription 363 School admission appeals 370 Special educational needs and learning disability 374 Introduction 374 The Tribunal 375 Residual jurisdiction of the High Court 378 Pupil discipline and exclusion 379 Introduction 379 Exclusion 380 Challenging RP decisions 380 School uniform 385

xxviii Judicial Review: Law and Practice Particular considerations 387 Standing and funding 387 Delay 387 Human rights 388 Conclusions 389 Chapter 12 Licensing 391 Introduction 391 Local decision-making 391 Specialist tribunals 391 Chapter outline 391 Status of a licence 391 Permission/authorisation 391 Possession or property? 392 Summary of the principles 395 Role of local licensing bodies 395 Quasi-judicial function? 395 Local decision-making 396 Local knowledge 396 Role of local councillors 397 Strong and robust opinions 397 A closed mind approach? 398 A less strict approach? 399 Summary of the general principles 399 Role of the appeal courts 400 Time periods for appealing 400 The nature of the appeal 401 Admissibility of fresh evidence 401 The appeal a true rehearing? 402 The appeal an alternative remedy 404 Case stated or judicial review? 405 Policies and guidance 405 Licensing policies an overview 405 Policies summary of general principles 406 Statutory guidance an overview 408 Guidance summary of general principles 408 Objectors and representors 410 Objections and representations an overview 410 The Miss Behavin litigation 411 Importance of the statutory context 412 The strength of opposition 413 Fair notice of objection or representation 414 Hearings and evidence 415 Being properly heard by the decision-maker 415 The procedure at the meeting or hearing 416 Matters are generally heard in public 416 The approach of the decision-maker 417

Contents xxix Judgment and the decision-maker s discretion 418 The future 419 Chapter 13 Local/Central Government 421 Introduction 421 The legal basis of central and local government 421 Residual and prerogative powers for central government 421 Residual prerogative powers for local government? 430 General power of competence 430 Multifunctional government and judicial review 436 Democratic issues 437 Political considerations 437 Fiduciary duty 437 Interests and probity 442 Relationship with officers 443 Role of standing orders 446 Concluding remarks 449 Chapter 14 Immigration Law 451 Introduction 451 Overview of the immigration, asylum and nationality law framework 451 Appellate structure 453 Judicial review jurisdiction of the UT 454 Pre-action matters to consider 455 Pre-action protocol letters 455 Time limits 456 Alternative remedies 456 Procedure in the UT 456 Urgent applications and interim relief 456 Lodging the application 457 Removal directions 458 Responding to the application the acknowledgment of service ( AoS ) 458 Permission 459 Substantive hearing 459 Consent orders 459 Costs 460 Common judicial review applications before the UT 460 Fresh claims 460 Certification 461 Delay 462 Article 8 ECHR/refusal to issue an appealable decision 463 Other challenges 464 Detention 464 Secondary legislation or the immigration rules 465 Decisions of the UT 465

xxx Judicial Review: Law and Practice National security/siac 465 Chapter 15 Professional Regulation 467 Introduction 467 Regulation and the regulators 467 What is regulation? 467 Self regulation v statutory regulation 467 Who are the regulators? 469 Key regulatory functions 472 Judicial review and the regulators 473 The limits of judicial review 473 Targets 473 Timing 475 Amenability 476 Alternative remedies 478 Restraint 480 Standing 481 The grounds of judicial review 481 Entry onto the register 482 Issues regarding registration 482 Exams 483 Recognition of certain qualifications 484 Maintaining the register 485 Removal from the register 485 Allegations 485 Investigations 488 The role of judicial review at the investigation stage 489 Data issues 490 Delay 491 Reopening cases 492 Adjudication 493 Preliminary issues 494 Adjournments 494 Charges 495 The substantive hearing 497 Standard of proof 497 Legal assessors 497 Natural justice 498 Article 6 of the European Convention on Human Rights 501 Unreasonableness 505 Illegality 506 Sanctions 508 Appeals 509 Costs 510 Postscript: Judicial review of the regulators by the regulators 511

Contents xxxi Chapter 16 Healthcare 515 Introduction 515 NHS reconfiguration and consultation 515 NHS continuing healthcare funding 518 Medical treatment policies 520 Individual funding requests 521 After-care services 522 Immigration and healthcare 525 Prisoners and healthcare 526 Conclusion 526 Part 3 Appendices Appendix 1 Procedural Guide 529 Claims for Judicial Review 529 Appendix 2 Statutory Materials 537 Senior Courts Act 1981, s 31 537 Tribunal Courts and Enforcement Act 2007, ss 15 18 539 First-tier Tribunal and Upper Tribunal (Chambers) (Amendment No 2) Order 2013, SI 2013/2068 542 Upper Tribunal (Immigration and Asylum Chamber) (Judicial Review) (England and Wales) Fees (Amendment) Order 2013, SI 2013/2069 543 Appendix 3 Civil Procedure Rules 545 Practice Directions 553 Practice Direction 54A Judicial Review 553 Practice Direction 54B Applications for Statutory Review under section 103A of the Nationality, Immigration and Asylum Act 2002 558 Practice Direction 54C References by the Legal Services Commission 558 Practice Direction 54D Administrative Court (Venue) 558 Practice Direction 54E Planning Court Claims 561 Pre Action Protocol for Judicial Review 562 Appendix 4 Administrative Court Guidance 571 Notes for guidance on applying for judicial review 571 Administrative Court guidance as to how the court will approach applications for costs following settlement of claims for judicial review 589

xxxii Judicial Review: Law and Practice R (on the application of Hamid) v Secretary of State for the Home Department [2012] EWHC 3070 591 R (Butt and Others) v SSHD [2014] EWHC 264 (Admin) 594 Appendix 5 Forms 599 N461 Judicial Review Claim Form 600 N462 Judicial Review Acknowledgment of Service 606 N463 Judicial Review Application for Urgent Consideration 610 T480 Judicial Review Claim Form in the Upper Tribunal Immigration and Asylum Chamber 612 T481 Accompanying Notes to T480 618 T482 Acknowledgment of Service in the Upper Tribunal Immigration and Asylum Service 622 T483 Judicial Review Application for Urgent Consideration in the Upper Tribunal Immigration and Asylum Chamber 625 Index 629