INTRODUCTION TO ADMINISTRATIVE LAW

INTRODUCTION
TO
ADMINISTRATIVE
LAW

CP
Cavendish
Publishing
Limited

London • Sydney



INTRODUCTION
TO
ADMINISTRATIVE
LAW
Neil Hawke, LLB (Hons), PhD
Professor of Environmental Law
Head of the Department of Law
De Montfort University
Neil Parpworth, LLB, MA
Lecturer in Law
De Montfort University

CP
Cavendish
Publishing
Limited

London • Sydney


First published in 1998 by Cavendish Publishing Limited, The Glass House,
Wharton Street, London WC1X 9PX, United Kingdom.
Telephone: +44 (0) 171 278 8000
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© Hawke, N, Parpworth, N 1996
Reprinted 1998

All rights reserved. No part of this publication may be reproduced, stored in a
retrieval system, or transmitted, in any form or by any means, electronic,
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London W1P 9HE, UK, without the permission in writing of the publisher.

Hawke, Neil
Introduction to Administrative Law
I Title II Parpworth, Neil
344.2026
ISBN 1 85941 191 6

Printed and bound in Great Britain

Preface

‘Government, even in its best state, is but a necessary evil; in its worst state,
an intolerable one.’
(Thomas Paine, 1737–1809)

Administrative law provides many of the safeguards which prevent government becoming an intolerable evil. It is the purpose of this book to provide an
introduction to administrative law and its control of government power indicating, wherever possible, the nature of those powers, the purpose of governmental functions as well as the scope and effectiveness of legal control. The book is
divided into four parts covering the administrative agencies of government, the
nature, characteristics and sources of its powers, the judicial review of administrative action and the remedies for unlawful and irregular administrative action.
To help the reader through the subject, a glossary of terms used in the book is
provided, together with a selected bibliography of further reading and a range
of self-assessment questions. The book is designed for use by those pursuing
degree level courses in Law or Public and Social Administration. Equally, the
book will be of use to those undertaking sub-degree or professional courses in
similar areas.
The last decade has seen some very significant changes in administrative
law, driven mainly by government policy. This is vividly illustrated by changes
in the status and functions of local government and the stringency of central
government control of local administration. Elsewhere privatisation has produced many more pages in the statute book. The government’s reliance on prerogative powers has also been reappraised by the courts, particularly through
the landmark decision in the GCHQ case. It is clear that the courts are prepared
to be far more proactive in adjudicating prerogative acts, even if only to delay
the government’s actions on the ground of unfairness. More generally, the
courts’ willingness to develop an increasingly comprehensive view of the
requirements in law of ‘fairness’ has coloured a good deal of judicial review. In
the same way there has been a continuing expansion of those bodies amenable
to judicial review: the self-regulatory bodies in the financial markets, for example. Finally, reference is made in the book to the rapidly expanding influence of
the law of the European Union which affects the framework of municipal
administrative law as much as it affects any other area of relevant ‘national’
law.

v


INTRODUCTION TO ADMINISTRATIVE LAW

We are indebted to Liz Steward of the Department of Law for her unfailing
energy and helpfulness in word-processing the text. Without her efforts we
would have found it very difficult to meet any of our deadlines!

Professor Neil Hawke
Neil Parpworth
Department of Law
1 September 1995

vi


Contents

Preface
Table of Cases
Table of Statutes
Glossary of Terms
Table of Abbreviations
Part 1

v
xix
xxxv

xlv
xlix

Administrative Law and the Administrative Agencies

1

The Scope and Purpose of Administrative Law
1.1 Definition of Administrative Law
1.2 The Rule of Law
1.3 The Constitutional Background to Administrative Law
1.3.1 The sovereignty and supremacy of Parliament
1.3.2 The separation of powers
1.3.3 Conventions
1.3.4 Prerogative powers
1.4 Administrative Law in Perspective

1
1
2
5
5
9
11
11
14

2

The Crown and Central Government

2.1 The Conduct of Government
2.2 Legal Immunities of the Crown
2.3 Crown Servants and Agents
2.4 Central Government Functions

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3

Statutory Inquiries
3.1 Categories
3.1.1 Accident inquiries
3.1.2 Company inquiries
3.1.3 Tribunals of inquiry
3.2 Inquiries and the Public Control of Land
3.2.1 The individual and policy-based decisions
3.3 The Franks Report on Tribunals and Inquiries

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CONTENTS

3.3.1

3.4

3.5

3.6
3.7

4

Implementation of the Franks Report: the Council on
Tribunals
3.3.2 Rules of procedure for statutory inquiries
Inquiries Procedure and Organisation
3.4.1 Planning appeals and statutory inquiries
3.4.2 Planning appeal decisions by inspectors
Inquiries Procedure Rules
3.5.1 Inquiry preliminaries
3.5.2 Procedure at the inquiry
3.5.3 Procedure following the inquiry
3.5.4 Notification of a decision and reasons
3.5.5 Procedural differences for decisions by inspectors
Legal Enforcement of the Inquiries Procedure Rules

Scope of the Statutory Inquiry System
3.7.1 Exclusion of statutory inquiries
3.7.2 Restriction of statutory inquiries
3.7.3 Statutory inquiries and proposals for
controversial development
3.7.4 The Windscale Inquiry
3.7.5 The statutory inquiry in future

Local Authorities
4.1 Status and Functions
4.1.1 County councils
4.1.2 District councils
4.1.3 Local government in Wales
4.1.4 London government
4.1.5 Parish councils
4.2 The Local Authority as a Statutory Corporation
4.2.1 The acquisition of property
4.2.2 Contracts
4.2.3 Extended powers
4.2.4 Local authorities’ contracts and the doctrine of ultra vires
4.2.5 Ultra vires in practice
4.2.6 Challenging local authorities’ ultra vires acts
4.3 Legal Control of Local Authorities
4.4 Local Government Finance and its Control
4.4.1 Central government control
viii

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CONTENTS

5

4.4.2 Audit
4.5 Central Government Control of Local Authorities
4.5.1 Statutory control
4.5.2 The administrative appeal process
4.5.3 The approval process
4.5.4 Default powers
4.6 The Council Member
4.6.1 Right of access to meetings and inspection of documents
4.6.2 Disclosure of pecuniary interests
4.7 The Council Officer
4.8 Bribery and Corruption
4.8.1 Coverage of the Acts
4.9 Council Meetings
4.10 Council Decisions
4.11 Legal Liability of Local Authorities
4.11.1 Tortious liability
4.11.2 Statutory authority
4.11.3 Negligence
4.11.4 Breach of statutory duty
4.11.5 Criminal liability

48

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53
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55
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57
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58
60
60
61
61
62
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Administrative Tribunals
5.1 Status
5.1.1 Tribunals and inquiries distinguished
5.1.2 Tribunals as ‘court substitutes’
5.1.3 Policy-oriented tribunals
5.2 Characteristics
5.3 Varieties of Tribunal and their Functions
5.3.1 Tribunals and appeals from departmental decisions
5.3.2 Tribunals and ‘first instance’ claims
5.3.3 Tribunals and disputes between individuals

5.3.4 Additional functions of tribunals
5.4 Allocation of Functions to Tribunals
5.4.1 The policy element in administrative decisions
5.4.2 The Civil Aviation Authority and the Transport Tribunal
5.4.3 Objective decisions: tribunals or courts?
5.4.4 Immigration appeals
5.4.5 Tribunals and local authority decisions

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CONTENTS

5.5
5.6

5.7

5.8
5.9

5.10

5.11

5.12
5.13
6

5.4.6 Tribunals and inferior courts
Tribunals and Inquiries Act 1992
Tribunals and Inquiries Act Safeguards
5.6.1 Tribunal membership
5.6.2 Rules of procedure for tribunals
Aspects of Tribunal Procedure and Organisation
5.7.1 The presidential system in tribunals
5.7.2 Openness in tribunal procedure
5.7.3 Tribunal representation
5.7.4 Legal aid, advice and assistance
5.7.5 Legal immunity for tribunal proceedings
5.7.6 Precedent in tribunals
Specific Tribunals

The Transport Tribunal
5.9.1 Composition
5.9.2 Procedure
5.9.3 Status
The Vaccine Damage Tribunals
5.10.1 Procedure
5.10.2 Status
Rent Assessment Committee and Rent Tribunals
5.11.1 Rent Assessment Committees
5.11.2 Rent Tribunals
5.11.3 Status
Social Security Appeal Tribunals
Social Security Commissioners

Public Corporations, Executive and Privatised Agencies
6.1 Status
6.1.1 Statutory corporations
6.1.2 Public corporations and functions of concern
to government
6.1.3 ‘Next Steps’
6.1.4 Industry, commerce and public utilities
6.1.5 Economic, social and welfare regulation
6.1.6 Social standardisation
6.1.7 Government control
6.1.8 Judicial control
x

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CONTENTS

6.2

6.3
6.4

6.5
6.6
6.7
6.8

6.1.9 Legal liability of public corporations
The Independent Television Commission
6.2.1 Membership and status
6.2.2 Powers, duties and functions
British Steel
The Electricity Generating and Supply Companies
6.4.1 The regulatory regime
6.4.2 General duties
6.4.3 The Director General’s powers
6.4.4 Powers of direction
The Housing Corporation
6.5.1 Government control and membership
The British Wool Marketing Board

The Nature Conservancy Council for England
6.7.1 Membership and status
The Advisory, Conciliation and Arbitration Service
Part 2

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95

Administrative Powers

7

The Nature and Characteristics of Administrative Powers
7.1 Statutory Powers
7.2 The Law of the European Union
7.2.1 The object of the EU

7.2.2 The nature of EU law
7.2.3 Administrative law, administrative powers and EU law
7.3 The Nature of Statutory Administrative Powers
7.3.1 The nature of discretionary powers
7.4 Characteristics of Administrative Powers
7.4.1 The initiation of administrative action
7.4.2 Licensing
7.4.3 Financial regulation
7.4.4 Contractual regulation
7.4.5 Regulation by the criminal law
7.4.6 Disciplinary regulation

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100
101
102
102
103
103
104
104
104
105

8

The Sources of Administrative Powers
8.1 The Range of Administrative Powers

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106

xi


CONTENTS

8.2

8.3

8.4

Legislation
8.2.1 The advantages and disadvantages of legislation
8.2.2 The Renton Committee on the Preparation of Legislation
8.2.3 The categories of legislation
8.2.4 The legislative procedure for Public Bills
8.2.5 The legislative procedure for Private Bills
8.2.6 The status of Private Bills
8.2.7 The scope of Private Acts
8.2.8 Private Local Acts and reorganisation
of local government
8.2.9 Miscellaneous Provisions Acts and Adoptive Acts
8.2.10 Provisional Orders
8.2.11 Special Procedure Orders

Delegated Legislation
8.3.1 Primary and delegated legislation in action
8.3.2 Statutory instruments
8.3.3 The classification of delegated legislation
8.3.4 Bylaws
8.3.5 Compulsory purchase orders
8.3.6 Standing orders
8.3.7 The publication of statutory instruments
8.3.8 Parliamentary control of delegated legislation
8.3.9 Delegated legislation and the courts
EU Law
8.4.1 The EU institutions
8.4.2 European Court of Justice
8.4.3 Sources of EU law
8.4.4 The direct applicability and direct effect of EU law
in Member States
Part 3

9

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109
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111
112
113
114

114
114
115
115
116
116
117
119
120
120
121
122
124
124
125
125
126

Judicial Review, Ultra Vires and Natural Justice

Procedural Ultra Vires
9.1 Statutory Procedures
9.1.1 Mandatory and directory procedures
9.1.2 Public functions
9.1.3 Individual rights and interests
9.1.4 Individuals’ procedure obligations
xii

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CONTENTS

9.1.5 Application requirements
9.1.6 Appeal requirements
9.1.7 Objections
9.1.8 Specific areas of procedure
Consultation
9.2.1 Legal effect of a failure to consult
Delegation
9.3.1 Government departments and local authorities
9.3.2 Implied authority
9.3.3 Legal effects of delegation
Estoppel
9.4.1 Requirements for common law estoppel
9.4.2 Restriction of estoppel
9.4.3 Estoppel and government policy
Communication of Decisions
Reasons
9.6.1 The purpose of reasons
9.6.2 Legal effect of a failure to give reasons or
adequate intelligible reasons

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133
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134
136
137
139
141
141
142
143
145
147
147
148
149

10 Natural Justice
10.1 Background to Natural Justice
10.2 Exclusion or Limitation of Natural Justice
10.2.1 Statutory provisions
10.2.2 Absence of rights
10.2.3 Preliminary processes
10.2.4 Absence of contractual or similar relationships
10.2.5 Professional advice
10.2.6 Disciplinary proceedings
10.3 Judicial and Administrative Functions
10.3.1 The duty to act judicially
10.3.2 Reliance on the distinction between functions
10.4 The Duty to Act Fairly
10.5 The Rule Against Bias

10.5.1 Application of the rule against bias
10.5.2 The test for bias
10.5.3 Modification or exclusion
10.6 The Right to Be Heard

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168
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170

9.2
9.3

9.4

9.5

9.6

xiii

151


CONTENTS

10.6.1 Prior notice
10.6.2 The opportunity to be heard
10.6.3 Scope of the rule
10.6.4 Legal representation
10.6.5 Duty to give reasons
10.7 The Effect of Breaches of Natural Justice
11 Substantive Ultra Vires
11.1 The Nature of Substantive Powers
11.2 Judicial Review of Substantive Powers
11.3 The Limits of Statutory Powers
11.3.1 Defining the limits
11.3.2 Fundamental matters of law
11.3.3 Inferior courts
11.3.4 Administrative agencies
11.4 Error of Law on the Face of the Record
11.4.1 Error of law on the face of the record and the
doctrine of ultra vires
11.5 Ouster Clauses and the Doctrine of Ultra Vires
11.6 The Limits of Discretionary Powers
11.6.1 The problem of subjectively worded
discretionary powers

11.7 Policy and the Exercise of Discretionary Powers
11.7.1 Lawful and unlawful policies
11.7.2 Acts under dictation
11.7.3 The interpretation and application of policy
11.8 Relevant Considerations
11.9 Improper Purposes
11.10 Total Unreasonableness
11.11 Proportionality
Part 4

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183
184
185
187
189
192

192
194
195
195
197
200
202

Remedies for Unlawful and Irregular Administrative Action

12 Administrative Remedies
12.1 Administrative and Judicial Remedies Contrasted
12.1.1 Varieties of administrative remedy
12.2 Administrative Remedies and the Question of Legality
12.2.1 Administrative versus judicial remedies
xiv

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205
206
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CONTENTS

12.2.2 Administrative and judicial remedies serving
the same purpose
12.2.3 Exclusive administrative remedies
13 Judicial Remedies

13.1 Judicial Remedies Generally
13.2 Appeals
13.2.1 The general appeal
13.2.2 The appeal on a point of law
13.3 Review
13.4 The Declaration
13.4.1 Uses of the declaration in administrative law
13.4.2 Exclusion of the declaration
13.4.3 Locus standi generally
13.4.4 Locus standi for the declaration
13.5 The Injunction
13.5.1 Varieties of injunction
13.5.2 The prohibitory injunction
13.5.3 The mandatory injunction
13.5.4 The interlocutory injunction
13.5.5 Locus standi for the injunction
13.5.6 Injunctions and the Crown
13.6 Certiorari
13.6.1 The grounds for certiorari
13.6.2 Bodies amenable to certiorari
13.6.3 Certiorari and the duty to act judicially
13.6.4 Certiorari and private bodies
13.6.5 Locus standi for certiorari
13.7 Prohibition
13.8 Mandamus
13.8.1 The legally enforceable duty
13.8.2 The scope of mandamus
13.8.3 Locus standi for mandamus
13.9 The Application for Judicial Review
13.9.1 Recommendation for reform: the application

for judicial review
13.9.2 Remedies available on an application for judicial review
13.9.3 Procedures and other requirements
xv

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227

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CONTENTS

13.9.4 The importance of the application for judicial review
13.9.5 The application for judicial review and the protection of
rights in public law
13.9.6 Proposals for reforming judicial review
13.10 Statutory Review
13.10.1 The background to statutory review
13.10.2 The scope of statutory review
13.10.3 The grounds for statutory review
13.10.4 The six-week limitation
13.10.5 The person aggrieved
13.11 Damages
13.12 Powers of Annulment in the European Court of Justice
13.12.1 The power of review
13.12.2 The scope of review
13.12.3 The grounds for annulment
13.12.4 Related functions of the European Court of Justice

14 Crown Proceedings
14.1 The Background to Crown Proceedings
14.1.1 The Crown Proceedings Act
14.2 Contracts and the Crown
14.2.1 Employment contracts
14.2.2 The funding of Crown contracts
14.2.3 Contracts fettering future executive action by the Crown
14.3 Tortious Liability of the Crown
14.3.1 Vicarious liability of the Crown
14.3.2 The employer’s common law duties
14.3.3 Common law duties relating to Crown property
14.3.4 Breach of statutory duty
14.3.5 The discharge of judicial responsibilities
14.3.6 Immunity in respect of certain acts of members of the
armed forces
14.4 Judicial Remedies and the Crown
14.4.1 Mandamus and the Crown
14.4.2 Injunctions and the Crown
14.5 Procedure
14.6 Public Interest Immunity
14.6.1 The conclusiveness of claims opposing discovery
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CONTENTS

14.6.2 Public interest immunity recognised
14.6.3 The application of public interest immunity
14.6.4 Administrative agencies and the disclosure
of confidential confidential information
14.6.5 Public interest immunity and Matrix Churchill
14.6.6 Public interest immunity certificates

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256
257
258
259
261
261
261
262

15 Remedies for Maladministration
15.1 The Ombudsman Remedy
15.1.1 Ombudsmen in the UK
15.2 The Parliamentary Commissioner for Administration
15.2.1 Government departments and authorities
subject to investigation
15.2.2 Matters excluded from investigation
15.2.3 Complaints
15.2.4 Alternative remedies
15.2.5 The investigation of administrative functions
15.2.6 Procedures for investigations

15.2.7 Injustice in consequence of maladministration
15.2.8 Maladministration and injustice in practice
15.2.9 Judicial review of reports and decisions
15.3 Health Service Commissioners
15.3.1 Matters excluded from investigation
15.3.2 Complaints
15.4 Local Commissioners for Administration
15.4.1 Matters excluded from investigation
15.4.2 Complaints
15.4.3 Maladministration and injustice in practice
15.5 The European Ombudsman

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266
267
268
269
270
270
271
271
272
272
273
273

Self-assessment Questions
Selected Bibliography
Index

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287

xvii



Table of Cases

Adams v Naylor [1946] AC 543 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .247
Agricultural, Horticultural and Forestry Industry Training Board v Aylesbury
Mushrooms Ltd [1972] 1 WLR 190, [1972] 1 All ER 280 . . . . . . . . . . . . . . . . . . . .134, 213
Ali v Tower Hamlets London Borough Council [1992] 3 All ER 512 . . . . . . . . . . . . . . . . .239
Allen v Gulf Oil Refining Ltd [1981] AC 1001, [1981] 2 WLR 188, [1981] 1 All ER 353 . . .62
American Cyanamid Co v Ethicon Ltd [1975] AC 396, [1975] 2 WLR 316, [1975]
1 All ER 504 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .222
Anisminic v Foreign Compensation Commission [1969] 2 AC 147, [1969]
2 WLR 163, [1968] 1 All ER 208 . . . . . . . . . . . . . . .9, 176, 182, 183, 185, 186, 204, 213, 214
Anns v Merton London Borough Council [1978] AC 728, [1977] 2 WLR 1024,
[1977] 2 All ER 492 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .62
Asher v Secretary of State for the Environment [1974] Ch 208, [1974] 2 WLR 466,
[1974] 2 All ER 156 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .199
Associated Provincial Picture Houses Ltd v Wednesbury Corporation [1948]
1 KB 223, [1947] 2 All ER 680 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .187, 196, 201
Attorney General, ex rel McWhirter v Independent Broadcasting Authority

[1973] QB 629, [1973] 2 WLR 344, [1973] 1 All ER 689 . . . . . . . . . . . . . . . . . . . . . .221, 223
Attorney General, ex rel Tilley v Wandsworth London Borough Council [1981]
1 WLR 854, [1981] 1 All ER 1162 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .194, 195
Attorney General of Hong Kong v Ng Yuen Shin [1983] 2 AC 629, [1983]
2 WLR 735, [1983] 2 All ER 346 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .164
Attorney General v Bastow [1957] 1 QB 514, [1957] 2 WLR 340, [1957] 1 All ER 497 . . .221
Attorney General v British Broadcasting Corporation [1981] AC 303, [1980]
3 WLR 109, [1980] 3 All ER 161 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .79
Attorney General v Crayford Urban District Council [1962] Ch 575, [1962]
2 WLR 998, [1962] 2 All ER 147 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .47
Attorney General v De Keyser’s Royal Hotel Ltd [1920] AC 508 . . . . . . . . . . . . . . . . . . . . .12
Attorney General v Melville Construction Co Ltd (1969) 20 P & CR 131, (1969)
67 LGR 309 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .221
Attorney General v Sharp [1931] 1 Ch 121 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .221
Attorney General v Wilts United Dairies Ltd [1921] 37 TLR 884 . . . . . . . . . . . . . . . . .44, 123
Avon County Council v Buscott [1988] QB 656, [1988] 2 WLR 788, [1988]
1 All ER 841, (1988) 86 LGR 569 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .239
Ayr Harbour Trustees v Oswald (1883) 8 AC 623 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .193

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INTRODUCTION TO ADMINISTRATIVE LAW
Backhouse v Lambeth London Borough Council (1972) Times, 14 October, (1972)
116 Sol J 802 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .50, 202
Bank of Scotland, Petitioner (1988) SLT 282 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .228
Banks Horticultural Products Ltd v Secretary of State for the Environment [1980]
JPL 33 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .201
Barnard v National Dock Labour Board [1953] 2 QB 18, [1953] 2 WLR 995, [1953]
1 All ER 1113 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .138

Barnes v District Auditor for No 11 Audit District, 24 February, 1976 unreported
(Divisional Court of the Queen’s Bench Division) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .50
Barraclough v Brown [1897] AC 615 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .208, 215
Barrs v Bethell [1982] Ch 294, [1981] 3 WLR 874, [1982] 1 All ER 106 . . . . . . . . . . . .220, 233
Bates v Lord Hailsham [1972] 1 WLR 1373, [1972] 3 All ER 1019 . . . . . . . . . . . . . . . . . . . .220
Becker v Home Office [1972] 2 QB 407, [1972] 2 WLR 1193, [1972] 2 All ER 676 . . . . . . .158
Birkdale District Electric Supply Co Ltd v Southport Corporation [1926] AC 355 . . . . .194
Blackburn v Attorney General [1971] 1 WLR 1037, [1971] 2 All ER 1380 . . . . . . . . .215, 218
Board of Education v Rice [1911] AC 179 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .172
Boyce v Paddington Borough Council [1903] 1 Ch 109 . . . . . . . . . . . . . . . . . . . . . . . . . . . .219
Bradbury v Enfield London Borough Council [1967] 1 WLR 1311,
[1967] 3 All ER 434 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .136
Brayhead (Ascot) Ltd v Berkshire County Council [1964] 2 QB 303, [1964] 2 WLR 507,
[1964] 1 All ER 149 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .151
British Broadcasting Corporation v Johns [1965] Ch 32, [1964] 2 WLR 1071, [1964]
1 All ER 923 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21, 87
British Oxygen Co Ltd v Minister of Technology [1971] AC 610, [1970]
3 WLR 488, [1970] 3 All ER 165 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .192
Bromley London Borough Council v Greater London Council [1982] 2 WLR 62, [1982]
1 All ER 12 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .197
Brooks and Burton Ltd v Secretary of State for the Environment [1977] 1 WLR 1294,
[1978] 1 All ER 733 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .145
Brown v Director of Public Prosecutions [1956] 2 QB 369, [1956] 2 WLR 1087, [1956]
2 All ER 189 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .56
Bugg v DPP [1993] QB 437, [1993] 2 WLR 628, [1993] 2 All ER 815 . . . . . . . . . . . . . . . . . .119
Burmah Oil Co Ltd v Bank of England [1980] AC 1090, [1979] 3 WLR 722,
[1979] 3 All ER 700 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .257
Burmah Oil Co Ltd v Lord Advocate [1965] AC 75, [1964] 2 WLR 1231, [1964]
2 All ER 648 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6, 107
Bushell v Secretary of State for the Environment [1981] AC 75, [1980]

3 WLR 22, [1980] 2 All ER 608 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .33, 154, 162, 163
Button v Jenkins [1975] 3 All ER 585 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .133
Buxton v Minister of Housing and Local Government [1961] 1 QB 278, [1960]
3 WLR 866, [1960] 3 All ER 408 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .242
xx


TABLE OF CASES
Byrne v Kinematograph Renters Society [1958] 1 WLR 762, [1958] 2 All ER 579 . . . . . .156
Calvin v Carr [1980] AC 574, [1979] 2 WLR 755, [1979] 2 All ER 440 . . . . . . . . . . . . . . . .176
Cambridge Water Co v Eastern Counties Leather plc [1994] 2 WLR 53, [1994]
1 All ER 53, HL . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .63
Carltona Ltd v Commissioners of Works [1943] 2 All ER 560 . . . . . . . . . . . . . . . . . .139, 260
Chester v Bateson [1920] 1 KB 829 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .123
Cocks v Thanet District Council [1982] 3 WLR 1121, [1982] 3 All ER 1135 . . . .237, 239, 240
Coleen Properties Ltd v Minister of Housing and Local Government [1971]
1 WLR 433, [1971] 1 All ER 1049 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14, 181, 192
Coney v Choyce [1975] 1 WLR 422, [1975] 1 All ER 979 . . . . . . . . . . . . . . . . . . . . . . . . . . .137
Congreve v Home Office [1976] QB 629, [1976] 2 WLR 291, [1976] 1 All ER 697 . . .191, 264
Continental Reinsurance Corporation (UK) Ltd v Pine Top Insurance Ltd [1986]
1 Ll LR 8 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .259
Conway v Rimmer [1968] AC 910, [1968] 2 WLR 998, [1968] 1 All ER 874 . . . . . . . .255, 259
Cooper v Wandsworth Board of Works (1863) 143 ER 414 . . . . . . . . . . . . . . . . . . . . . . . . .160
Cory, William & Son Ltd v Corporation of London [1951] 2 KB 476, [1951] 2 TLR 174,
[1951] 2 All ER 85 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .193
Costello v Dacorum District Council (1983) 81 LGR 1 . . . . . . . . . . . . . . . . . . . . . . . . .198, 200
Council of Civil Service Unions v Minister for the Civil Service [1985]
AC 374, [1984] 3 WLR 1174, [1985] ICR 14, [1984] 3 All ER 935 . . . . . . .11, 178, 201, 202
Covent Garden Community Association Ltd v Greater London Council [1981]
JPL 183 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .219, 229

Credit Suisse v Allerdale Borough Council (1994) Independent, 17 June . . . . . . . . . . . . . .44
Credit Suisse v Waltham Forest London Borough Council (1994) Times,
8 November . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .44
Crompton (Alfred) Amusement Machines Ltd v Commissioners of Customs
and Excise [1973] 3 WLR 268, [1973] 2 All ER 1169 . . . . . . . . . . . . . . . . . . . . . . . . . . . .257
Crown Lands Commissioners v Page [1960] 2 QB 274, [1960] 3 WLR 446, [1960]
2 All ER 726 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .194, 249
Cullimore v Lyme Regis Corporation [1962] 1 QB 718, [1961] 3 WLR 1340, [1961]
3 All ER 1008 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .130
Cumings v Birkenhead Corporation [1972] Ch 12, [1971] 2 WLR 1458, [1971]
2 All ER 881 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .192
Customs and Excise Commissioners v Cure and Deeley Ltd [1962] 1 QB 340,
[1961] 3 WLR 798, [1961] 3 All ER 641 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2, 123, 189
Customs and Excise Commissioners v ApS Samex [1983] 1 All ER 1042 . . . . . . . . . . . . .126
D v NSPCC [1978] AC 171, [1977] 2 WLR 201, [1977] 1 All ER 589 . . . . . . . . . . . . . . . . . .256
DPP v Hutchinson, [1988] QB 834 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .118
DPP v Hutchinson [1990] 3 WLR, [1990] 2 All ER 836 . . . . . . . . . . . . . . . . . . . . . . . . . . . . .118
xxi


INTRODUCTION TO ADMINISTRATIVE LAW
Davy v Spelthorne District Council [1983] 3 All ER 278 . . . . . . . . . . . . . . . . . . . . . . . . . . .238
Derbyshire County Council v Times Newspapers [1993] AC 534, [1993] 1 WLR 449,
[1993] 1 All ER 1011, HL . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .59
De Verteuil v Knaggs [1918] AC 557 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .177
Dimes v Grand Junction Canal Proprietors (1852) 10 ER 301 . . . . . . . . . . . . . . . . . . .166, 176
Doody v Secretary of State for the Home Department [1993] 3 WLR 154, [1993]
3 All ER 92 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .155, 175
Dowty, Boulton Paul Ltd v Wolverhampton Corporation (No 1) [1971]
1 WLR 204, [1971] 2 All ER 277 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .221, 222

Dowty, Boulton Paul Ltd v Wolverhampton Corporation (No 2) [1973]
2 WLR 618, [1973] 2 All ER 491 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .180
Duncan v Cammell, Laird & Co Ltd [1942] AC 624, [1942] 1 All ER 587 . . . . .254, 256, 259
Dunkley v Evans [1981] 1 WLR 1522, [1981] 3 All ER 285 . . . . . . . . . . . . . . . . . . . . . . . . . .124
Dunn v R [1896] 1 QB 116 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .248
Dunne v North Western Gas Board [1964] 2 QB 806, [1964] 2 WLR 164, [1963]
3 All ER 916 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .63
Dutton v Bognor Regis Urban District Council [1972] 1 QB 373, [1972]
2 WLR 299, [1972] 1 All ER 462 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .62
Dyson v Attorney General [1911] 1 KB 410
[1995] 2 AC 633, [1995] 3 WLR 152, [1995] 3 All ER 353 . . . . . . . . . . . . . . . . . . . . . . . .219
E (A Minor) v Dorset County Council . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .63
Eckersley v Secretary of State for the Environment (1978) 76 LGR 245 . . . . . . . . . . . . . .189
Ellis v Dubowski [1921] 3 KB 621, [1921] All ER 272 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .194
Enderby Town Football Club v Football Association Ltd [1971] Ch 591, [1970]
3 WLR 1021, [1971] 1 All ER 215 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .173
Epping Forest District Council v Essex Rendering Ltd [1983] 1 WLR 158, [1983]
1 All ER 359, (1983)81 LGR 252 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .148
Equal Opportunities Commission v Birmingham City Council [1989] AC 1155,
[1989] 2 WLR 520, [1989] 1 All ER 769 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .218
Errington v Minister of Health [1935] 1 KB 249, [1934] All ER 154 . . . . . . . . . .160, 162, 163
Essex County Council v Minister of Housing and Local Government (1967)
18 P & CR 531, (1968) 66 LGR 23 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .161
European Parliament v Council of the European Communities [1987]
ECR 1513, [1986] 1 CMLR 138 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .124, 246
Factortame Ltd v Secretary of State for Transport [1989] 2 All ER 692 . . . . . . .224, 225, 253
Factortame Ltd and Others v Secretary of State for Transport (No 2) [1991]
1 AC 603, [1990] 3 WLR 818, [1991] 1 All ER 70 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7
Fairmount Investments Ltd v Secretary of State for the Environment [1976]
1 WLR 1255, [1976] 2 All ER 865 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .163, 170

xxii


TABLE OF CASES
Findlay, Re [1985] AC 318, [1984] 3 WLR 1159, [1984] 3 All ER 801 . . . . . . . . . . . . . . . . .195
Fiordland Venison Ltd v Minister of Agriculture and Fisheries [1978] 2 NZLR 341 . . .152
Fletcher’s Application, Re [1970] 2 All ER 527 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .231, 266
Francovich v Italian Republic [1991] ECR I-5403, [1992] IRLR 85 . . . . . . . . . . . . . . . . . . .127
Franklin v Minister of Town and Country Planning [1948] AC 87, [1947]
63 TLR 446, [1947] 2 All ER 289 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .161, 162, 167
Fraser v Mudge [1975] 1 WLR 1132, [1975] 3 All ER 78 . . . . . . . . . . . . . . . . . . . . . . . . . . . .174
French Kier Developments Ltd v Secretary of State for the Environment [1977]
1 All ER 296 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .34, 35, 151
Fry, Ex p [1954] 1 WLR 730, [1954] 2 All ER 118 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .157
Gaiman v National Association for Mental Health [1971] Ch 317, [1970]
3 WLR 42, [1970] 2 All ER 362 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .153
Gain v Gain [1961] 1 WLR 1469 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .260
Giddens v Harlow District Auditor (1972) 70 LGR 485 . . . . . . . . . . . . . . . . . . . . . . . . . . . . .49
Givaudan v Minister of Housing and Local Government [1967] 1 WLR 250, [1966]
3 All ER 696 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .151
Glynn v Keele University [1971] 1 WLR 487, [1971] 2 All ER 89 . . . . . . . . . . . .160, 164, 173
Golden Chemical Products Ltd, Re [1976] Ch 300, [1976] 3 WLR 1, [1976]
2 All ER 543 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .140
Gouriet v Union of Post Office Workers [1978] AC 435, [1977] 3 WLR 300, [1977]
3 All ER 70 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .219, 223
Gregory v Camden London Borough Council [1966] 1 WLR 899, [1966]
2 All ER 196 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .219, 229
Grunwick Processing Laboratories Ltd v Advisory, Conciliation and Arbitration
Service [1978] AC 655, [1978] 2 WLR 277, [1978] 1 All ER 338 . . . . . . . . . . . . . . . . . . .130
Guppys (Bridport) Ltd v Sandhoe (1975) 30 P & CR 69 . . . . . . . . . . . . . . . . . . . . . . . . . . . .150

H K (An infant), Re [1967] 2 QB 617, [1967] 2 WLR 962, [1967] 1 All ER 226 . . . . . .163, 165
Hall & Co v Shoreham-by-Sea Urban District Council [1964] 1 WLR 240, [1964]
1 All ER 1 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .201
Hammersmith and Fulham London Borough Council v Secretary of State for the
Environment [1991] AC 521, [1990] 3 All ER 589 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .269
Hanks v Minister of Housing and Local Government [1963] 1 QB 999, [1962]
3 WLR 1482, [1963] 1 All ER 47 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .198
Hazell v Hammersmith and Fulham London Borough Council [1992] 2 AC 1, [1991]
2 WLR 372, [1991] 1 All ER 545, HL . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .44
Hedley, Byrne & Co v Heller & Partners [1964] AC 465, [1963] 3 WLR 101, [1963]
2 All ER 575 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .63
Herring v Templeman [1973] 3 All ER 569 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .156
Heywood v Hull Prison Board of Visitors [1980] 1 WLR 1386, [1980] 3 All ER 594 . . . .237
xxiii


INTRODUCTION TO ADMINISTRATIVE LAW
Hibernian Property Co Ltd v Secretary of State for the Environment (1974)
72 LGR 350 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .162, 163
Hill v Parsons (CA) & Co [1972] 1 Ch 305, [1971] 3 WLR 995, [1971] 3 All ER 1345 . . . .159
Hitchens, Robert (Builders) Ltd v Secretary of State for the Environment [1978]
JPL 554 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .207
Hoffmann-La Roche & Co A G v Secretary of State for Trade and Industry [1975]
AC 295, [1973] 3 WLR 805, [1973] 3 All ER 945 . . . . . . . . . . . . . . . . . . . . . . . . . . . .222, 243
Home Office v Dorset Yacht Co Ltd [1970] AC 1004, [1970] 2 WLR 1140, [1970]
2 All ER 294 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .250
Hone v Maze Prison Board of Prison Visitors [1988] AC 379, [1988] 1 All ER 321 . . . . .174
Horrocks v Lowe [1975] AC 135, [1974] 2 WLR 282, [1974] 1 All ER 662 . . . . . . . . . . . . . .59
Hounslow London Borough Council v Twickenham Garden Developments Ltd
[1971] Ch 233, [1970] 3 WLR 538, [1970] 3 All ER 326 . . . . . . . . . . . . . . . . . . . . . . . . . .157

Howard v Bodington (1877) 2 PD 203 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .128
Howard v Secretary of State for the Environment [1975] QB 235, [1974]
2 WLR 459, [1974] 1 All ER 644 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .133
Howell v Falmouth Boat Construction Co [1951] AC 837, [1951] 2 TLR 151, [1951]
2 All ER 278 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .145
Huth v Clarke (1890) 25 QBD 391 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .141
Inland Revenue Commissioners v National Federation of Self-Employed
and Small Businesses Ltd [1981] 2 WLR 722, [1981] 2 All ER 93 (sub nom
R v Inland Revenue Commissioners, ex p National Federation of
Self-Employed and Small Businesses Ltd [1982] AC 617) . . . . . . . . . . . . . .216, 229, 233, 235
James v Minister of Housing and Local Government [1965] 3 All ER 602 . . . . . . . . . . . .147
Jeffs v New Zealand Dairy Production and Marketing Board [1967] 1 AC 551,
[1967] 2 WLR 136, [1966] 3 All ER 863 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .139, 169, 172
John v Rees [1969] 2 WLR 1294, [1969] 2 All ER 274 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .160
Johnson, B & Co (Builders) Ltd v Minister of Health [1947] 2 All ER 395 . . . . . . . .160, 163
Jolliffe v Secretary of State for the Environment (1971) 218 EG 565
[1995] 2 AC 633, [1995] 3 WLR 152, [1995] 3 All ER 353 . . . . . . . . . . . . . . . . . . . . . . . .212
Keating v Bromley London Borough Council (1995) Times, 30 June 30, . . . . . . . . . . . . . .63
Kent County Council v Peter Thompson Poultry [1989] COD 517, [1989] Crim LR 651,
[1990] 2 CMLR 893 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .115
Kent Messenger Ltd v Secretary of State for the Environment (1976) 241 EG 25 . . . . . .151
Kirklees Metropolitan Borough Council v Wickes Building Supplies Ltd [1992]
3 WLR 170, [1992] 3 All ER 717 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .222
Kruse v Johnson [1898] 2 QB 91 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .118

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