Basten QC, John --- "Judicial Review: Recent Trends" [2001] FedLawRw 18; (2001) 29(3) Federal Law Review 365
[*] I should thank many people for their contribution to my understanding of the topics touched on in this paper. At the risk of failing to do justice to many, may I thank Prof Mark Aronson for his comments on the appropriate scope of the paper, Neil Williams for his assistance with various arguments and Kathleen Crawley for assistance with research. I recommend, for a much more comprehensive and instructive review of the recent cases, John MacMillan's paper "Federal Court v Minister for Immigration" [1999] AIAdminLawF 8; (1999) 22 AIAL Forum 1.
[1] (1990) 170 CLR 1, 35–36.
[2] Cited in the majority judgement in Minister for Immigration and Ethnic Affairs v Wu Shan Liang (1996) 185 CLR 259, 272.
[3] See United Nations Convention Relating to the Status of Refugees 1951, opened for signature 28 July 1951 (entered into force 22 April 1954), Art 1A(2).
[6] This issue was identified obiter by Gummow J in Minister for Immigration and Multicultural Affairs v Eshetu [1999] HCA 21; (1999) 197 CLR 611, paras 130-140.
[7] See Aronson, 'The Resurgence of Jurisdictional Facts' (2001) 12 Pub Law Review 17.
[8] See generally Bateman's Bay Local Aboriginal Land Council v Aboriginal Community Benefit Fund Pty Ltd [1998] HCA 49; (1998) 194 CLR 247; Enfield City Corporation v Development Assessment Commission [2000] HCA 5; (1999) 199 CLR 135.
[10] Generally speaking, interlocutory injunctions are not sought: where the review process has been properly instituted and is being pursued on available grounds, steps are not taken to remove litigants during the course of the review proceedings.
[12] [1999] HCA 14; (1999) 197 CLR 510, para 107.
[13] Craig v South Australia [1995] HCA 58; (1995) 184 CLR 163, 177.
[14] Contained in s 476(3)(d) and (e).
[15] See now Minister for Immigration and Multicultural Affairs v Yusuf [2001] HCA 30; (2001) 75 ALJR 1105, paras 48-51 (Gaudron J), 76-83 (McHugh, Gummow and Hayne JJ, Gleeson CJ concurring), cf 211 (Callinan J).
[16] Public Service Association (SA) v Federated Clerks' Union [1991] HCA 33; (1991) 173 CLR 132, 160 (Dawson and Gaudron JJ).
[17] See discussion in judgment of Madgwick J in Minister for Immigration and Multicultural Affairs v Bhardwaj [1999] FCA 1806 para 16; upheld on appeal– [2000] FCA 789; (2000) 99 FCR 251, but subject to a further appeal reserved in the High Court.
[18] Whether an exercise of power could ever be treated as a nullity absent jurisdictional error is doubtful.
[19] Re Refugee Review Tribunal; Ex parte Aala [2000] HCA 57; (2000) 75 ALJR 52.
[20] But see discussion of the inter-relationship of equitable and administrative law remedies in Enfield City Corporation v Development Assessment Commission [2000] HCA 5; (1999) 199 CLR 135; Bateman's Bay Local Aboriginal Land Council v Aboriginal Community Benefit Fund Pty Ltd [1998] HCA 49; (1998) 194 CLR 247.
[21] It must also be noted that the Migration Act seeks to preclude remitter under s 44 of the Judiciary Act 1903 (Cth) of any matter in relation to which the Federal Court does not have power under Part 8 of the Migration Act: s 485(3). Similarly, there is an exclusion of jurisdiction in the Federal Court pursuant to s 39B of the Judiciary Act, to the extent that that jurisdiction would exceed the jurisdiction conferred by Part 8: s 485(1).
[22] See also Morling and French JJ in a joint judgement in David Jones Finance and Investments Pty Ltd v Commissioner of Taxation (1991) 28 FCR 484, 491-497.
[23] [1995] HCA 23; (1994-95) 183 CLR 168, 178-180 (Mason CJ) and 204-207 (Deane and Gaudron JJ) 231-2 (Toohey J). See also Aronson and Dyer, Judicial Review of Administrative Action (2nd ed, 2000) 24-28; David Jones Finance was disapproved on a separate issue: 183 CLR, 185-186 (Mason CJ), 239-242 (McHugh J).
[24] For example, Re Coldham; Ex parte Brideson [1989] HCA 2; (1988-89) 166 CLR 338, 349: see also Darling Casino Ltd v NSW Casino Control Authority [1997] HCA 11; (1996-97) 191 CLR 602, 632-633 (Gaudron and Gummow JJ; Brennan CJ, Dawson and Toohey JJ agreeing).
[25] [1968] UKHL 6; [1969] 2 AC 147.
[26] In particular, 166 ff. See also Hayne J in Ex parte Aala, above n.19, para 168.
[27] Encompassing within that concept a contravention of procedural fairness and want or excess of power: 166.
[28] See Aronson and Dyer, above n.23, 166-167.
[29] See discussion in Oates v Attorney-General [1998] FCA 775; (1999) 84 FCR 348.
[30] Haoucher v Minister for Immigration & Ethnic Affairs [1990] HCA 22; (1989-90) 169 CLR 648, 679-80 (McHugh J).
[31] See discussion in Wik Peoples v Queensland (1996) 187 CLR 1, 177-184 (Gummow J).
[32] Cowen & Zines, Federal Jurisdiction in Australia (2nd ed, 1978), 52 and, identifying the Royal Commission, xvii.
[33] See Cowen & Zines, ibid and Administrative Decisions (Judicial Review) Act 1977 (Cth).
[35] The operation of s 75(v) is, of course, ambulatory in the sense that it will have application to a new statutory regime such as that provided by the Migration Act with respect to protection visas (to the extent that it would in 1901, had such a regime then existed).
[36] [1970] HCA 61; (1970) 122 CLR 69, 77.
[37] That such matters of degree may be involved is also apparent from the Court's treatment of the term "aliens": see Pochi v Macphee [1982] HCA 60; (1982) 151 CLR 101, 109 (Gibbs CJ) and Nolan v Minister for Immigration & Ethnic Affairs [1988] HCA 45; (1988) 165 CLR 178, 134 and 186.
[38] R v Commonwealth Court of Conciliation and Arbitration; Ex parte Whybrow & Co. [1910] HCA 33; (1910) 11 CLR 1 and R v Commonwealth Court of Conciliation and Arbitration; Ex parte Brisbane Tramways Co. Ltd (No. 1) [1914] HCA 15; (1914) 18 CLR 54.
[39] [2000] HCA 57; (2000) 176 ALR 219.
[40] Ibid paras 164-166.
[41] Ibid para 25.
[42] Ibid para 34.
[43] Gleeson CJ agreed with the reasons of Gaudron and Gummow JJ; Kirby J gave a separate judgment to similar effect, at paras 135-137 and 141-142. Callinan J found it unnecessary to address the issue as perogative relief would have been available at the time of Federation for the breach of the rules of natural justice identified in the instant case: para 216.
[44] The Hickman principle relied on by Hayne J is itself likely to attract further attention in due course.
[45] Australian Broadcasting Tribunal v Bond [1990] HCA 33; (1990) 170 CLR 321, 356.
[46] Under paras (a) or (e) of s 476(1).
[47] [1999] HCA 21; (1999) 197 CLR 611.
[48] [2001] HCA 30; (2001) 75 ALJR 1105.
[49] See Minister for Immigration and Multicultural Affairs v Rajamanikkam [2000] FCA 1023; (2000) 179 ALR 495, subject to an appeal before the High Court.
[51] That there was no exclusive code in relation to primary decision-making was addressed by another s 75(v) case, Re Minister for Immigration and Multicultural Affairs; Ex parte Miah (2001) 75 ALJR 889.
[52] [1997] FCA 603; (1997) 71 FCR 300.
[53] [1999] HCA 21; 197 CLR 611 at para 49 (Gleeson CJ and McHugh J).
[54] The best known example is s 13 of the ADJR Act, but more relevant to the case law discussed below, there is express provision to similar effect imposing an obligation on the Refugee Review Tribunal: Migration Act, s 430.
[55] See, eg, Administrative Appeals Tribunal Act 1975, s 43(2) and (2B).
[56] Administrative Decisions (Judicial Review) Act 1977 (Cth), s 13(1).
[57] See also s 368 in relation to the Migration Review Tribunal.
[58] [1996] FCA 1342; (1996) 62 FCR 402.
[59] [1990] FCA 383; (1990) 24 FCR 564.
[60] 24 FCR at 573.
[61] [1971] 1 NSWLR 376 (CA (NSW)).
[62] [1985] HCA 10; (1984-85) 155 CLR 422, 445-446.
[63] [1997] FCA 1415; (1997) 151 ALR 647, 656-659.
[64] Pettit v Dunkley, above n 61; Apps v Pilet (1987) 11 NSWLR 350 and Soulemezis v Dudley (Holdings) Pty Ltd (1987) 10 NSWLR 247; Mifsud v Campbell (1991) 21 NSWLR 725; Yates Property Corp Pty Ltd (In Liq) v Darling Harbour Authority (1991) 24 NSWLR 156; Kiama Constructions Pty Ltd v Davey (1996) 40 NSWLR 639. See now Health Care Complaints Commission v Beck [1999] NSWCA 236 (15 July 1999) approving dissenting views of Fitzgerald P in Cypressvale Pty Ltd v Retail Shop Leases Tribunal [1995] QCA 187; (1996) 2 Qd R 462 at 475.
[65] Support for his Honour's reasoning was recently given by Kiefel J in Minister for Immigration and Multicultural Affairs v Singh [2000] FCA 845; (2000) 98 FCR 469, a decision of the Full Court (Black CJ, Sundberg, Katz and Hely JJ, Kiefel J dissenting on this point).
[66] Section 478(1)(b).
[67] Section 478(2).
[68] See s 430D(1).
[69] [1999] FCA 1681; (1999) 95 FCR 506.
[71] [2000] FCA 845; (2000) 98 FCR 469.
[72] [2001] HCA 30; (2001) 75 ALJR 1105.
[73] See s 430(1)(a).
[74] See s 430(1)(b).
[75] In a series of cases, the Federal Court has upheld an obligation 'to give proper, genuine and realistic consideration upon the merits': Kahn v Minister for Immigration, Local Government and Ethnic Affairs; Broussard v Minister for Immigration and Ethnic Affairs; Surinakova v Minister for Immigration, Local Government and Ethnic Affairs. See also Hindi v Minister for Immigration and Ethnic Affairs (1988) 20 FCR 1, 12-13.
[76] Ibid para 55.
[77] [1990] HCA 33; (1990) 170 CLR 321, 356.
[78] [1966] HCA 69; (1966) 116 CLR 644, 654.
[79] [1990] HCA 33; (1990) 170 CLR 321 at 356. See also discussion of 'perversity' in Bruce v Cole (1998) 45 NSWLR 163, 188-189 (Spigelman CJ), and in the judgments of the Chief Justice and Fitzgerald JA in Hill v Green [1999] NSWCA 477; (1999) 48 NSWLR 161.
[80] Because it is expressly excluded by s 476(2)(b) of the Migration Act.
[81] Minister for Immigration and Multicultural Affairs v Eshetu [1999] HCA 21; (1999) 197 CLR 611, paras 123-127; see characterization of 'discretion' in Coal & Allied Operations Pty Ltd v Australian Industrial Relations Commission [2000] HCA 47; (2000) 74 ALJR 1348, para 19.
[82] Thevendram v Minister for Immigration and Multicultural Affairs [2000] FCA 1910 (21 December 2000) Lee J, paras 35-36.
[83] Migration Act, s 476(1)(a).
[84] Particularly, the majority judgment in Xu v Minister for Immigration and Multicultural Affairs [1999] FCA 1741; (1999) 95 FCR 425, followed by Kiefel J in Singh (in dissent). And see the approach taken to the statutory obligation to provide an opportunity to appear before the Tribunal (s 425) in Minister for Immigration and Multicultural Affairs v Capitly [1999] FCA 193; (1999) 55 ALD 365, paras 31-36.
[86] [2000] FCA 845; 98 FCR 469, para 106.
[87] Minister for Immigration and Multicultural Affairs v Yusuf [2001] HCA 30; (2001) 75 ALJR 1105 at para 78.
[88] (1998) 45 NSWLR 163, 186G-7C and 187G-189G. Compare the discussion in the judgment of Gummow J in Minister for Immigration and Multicultural Affairs v Eshetu (1999) CLR 611, paras 130ff concerning the irrational formation of an opinion by the decision-maker.
[89] With whom Mason P, Priestley, Sheller and Powell JJA agreed.
[90] Ibid 189E-F.
[91] Ibid 189G.
[95] Ibid 662.
[97] Ibid 317-319 and see 159 CLR 656, 664-5.
[98] Ibid 318j.
[99] R v Immigration Appeal Tribunal; Ex parte Kahn (Mahmud) [1983] QB 790, 794-5.
[100] 159 CLR 656, 664; cf [1991] 4 All ER 319.
[101] Ibid 322d.
[102] Ibid 323j.
[103] [1993] UKHL 8; [1994] 1 AC 531.
[104] Ibid 564E-F.
[105] Ibid 564H.
[106] Ibid 565F-G.
[107] [1993] EWHC Admin 5; [1994] 1 WLR 242.
[108] Ibid 257-8.
[109] The question, not expressly addressed, was whether, absent proper reasons for it, the underlying decision was incomplete or invalid.
[110] In the particular circumstances the question may have been whether aspects of the decision were severable.
[111] [1993] EWHC Admin 5; [1994] 1 WLR 242.
[112] Ibid 263. The reference to a need for leave was a reference to the requirements of the Supreme Court Act 1981 (UK) s 31(3).
[113] [1997] 1 WLR 765.
[115] Cory and Iacobucci JJ.
[116] Ibid para 35.
[117] Ibid para 41.
[118] Ibid para 43.
[119] It will be rare that a partial statement of procedural rights gives rise to an implied exclusion of other rights: see Baba v Parole Board of NSW (1986) 5 NSWLR 338, 334- 5 (Hope JA), 347 (Mahoney JA) at 349 (McHugh JA), cited with approval in Annetts v McCann [1990] HCA 57; (1990) 170 CLR 596, 598 (Mason CJ, Deane and McHugh JJ).
[120] [1985] HCA 81; (1985) 159 CLR 550.
[121] Ibid 584.
[122] [1990] HCA 22; (1989-90) 169 CLR 648, 683.
[123] Ibid 657 (Dawson J).
[124] [1995] HCA 20; (1995) 183 CLR 273, 312.
[125] Kioa v West [1985] HCA 81; (1985) 159 CLR 550, 587.
[126] [1990] HCA 33; (1990) 170 CLR 321, 366-367.
[127] (2000) 75 ALJR 889.
[128] [1993] FCA 297; (1993) 43 FCR 100, 129; see also David v Minister of Immigration, Local Government and Ethnic Affairs (Wilcox J, unrep 12 October 1995).
[129] [1992] FCA 44; (1992) 34 FCR 212 (Black CJ, Spender and Gummow JJ).
[130] [1990] HCA 33; (1990) 170 CLR 321, 355-360.
[131] [1992] FCA 44; 34 FCR 212, 221.
[132] Ibid 225.
[133] [1990] HCA 33; 170 CLR 321, 357-358.
[134] [1992] FCA 44; 34 FCR 212, 220-221.
[135] (1996) 185 CLR 259, 274-275.
[136] Australian Broadcasting Tribunal v Bond [1990] HCA 33; (1990) 170 CLR 321, 341.5.
[137] Ibid 357.5.
[138] Ibid 358.4.
[139] The equivalent of s 476(4).
[140] (1985) 4 NSWLR 139, 156 (Glass JA, Samuels JA agreeing).
[141] (1995) 4 NSWLR 139, 156.
[142] (1986) 70 ALR 147, 155-157.
[143] Paras 41, 42 and 43.
[144] Para 22, set out in 70 ALR, 156 (10).
[145] [1976] UKHL 6; [1977] AC 1014 (HL).
[146] [1977] AC 1047 D-E.
[147] [1977] AC 1051E and 1052D.
[148] (1998) 51 ALD 11 (Burchett, Tamberlin and Emmett JJ).
[149] There was no doubt that she came from Somalia and was a member of the Marehan clan.
[151] [1999] FCA 854; (1999) 55 ALD 600 (French, RD Nicholson and Finkelstein JJ).
[152] Paras 57-59.
[153] Ibid para 59.
[155] [1999] FCA 962 para 26.
[156] Ibid para 17.
[157] Ibid para 25.
[158] [2000] FCA 1023; (2000) 179 ALR 495 para 21.
[159] (2nd ed) Chapter 5 Part 4.
[160] See Wade and Forsyth, Administrative Law (7th ed) 318-320.
[161] See above, Introduction.