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Clarity and ambiguity: a new approach to the test of legitimacy in the law of legitimate expectations

Published online by Cambridge University Press:  02 January 2018

Jack Watson
Jack Watson*
Affiliation:
Emmanuel College, Cambridge
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Abstract

This paper examines the legitimacy element of the doctrine of legitimate expectations in English administrative law. It argues that the underlying principle is the voluntary assumption of responsibility that comes from analysing a promise as a social convention. From this underlying principle, it argues that the current ‘clear unambiguous representation’ test is insufficiently certain and instead advocates a three-stage test centred round the courts' ability to make an order, the objective construction of the promise and the decision makers' intent. This test, it is argued, explains the decided cases, as well as providing a robust structure for future decisions.

Type
Research Article
Information
Legal Studies , Volume 30 , Issue 4 , December 2010 , pp. 633 - 652
Copyright
Copyright © Society of Legal Scholars 2010

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References

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2. See Re Findlay [1985] AC 318 at 338 per Lord Scarman: ‘But what was their legitimate expectation?’.

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4. Ibid.

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15. Above n 5.

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17. It is conceivable that there might be other methods giving clear indications of the decision maker's intentions regarding the applicant's entitlement; see e.g. R v Inland Revenue Commissioners, ex p Unilever plc [1996] STC 681.

18. [1985] AC 374.

19. Ibid, at 401.

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21. The term representation must here be interpreted to include representation by conduct, policy, etc.

22. Above n 17.

23. Above n 18, at above Para ref?

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26. [2008] EWHC 1409 (Admin), [2008] AC 70.

27. [2008] UKHL 61, [2009] 1 AC 453.

28. [2001] QB 1067.

29. Above n 27, at [62].

30. Ibid.

31. Ibid, at [73].

32. Ibid.

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35. Ibid, at 568.

36. See, eg, British Oxygen Co v Minister of Technology [1971] AC 610. Though this does raise the question as to whether there is tension between this rule and the legitimate expectation doctrine (on which see below).

37. See also Wheeler v Prime Minister, above n 26.

38. Above n 34.

39. Ibid, at 575.

40. See, eg, Coughlan, above n 1.

41. [2008] EWCA Civ 755, (2008) 152(29) SJLB 29.

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48. As prohibited under the Bill of Rights 1689.

49. This is distinct from its protection. It is conceivable, indeed likely, that an expectation of substantive benefit will not be substantively protected: R v Devon CC, ex p Baker [1995] 1 All ER 73 per Simon Brown LJ.

50. [1984] 1 WLR 1337.

51. See, eg, Ng Yuen Shiu, above n 13, R v Secretary of State for the Home Department, ex p Hargreaves [1997] 1 All ER 397, Coughlan, above n 1.

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54. Above n 34, at 575.

55. A full examination of the individuals capable of making binding representations is beyond the scope of this paper. For an illuminating discussion of these issues, see Moules Actions against Public Officials: Legitimate Expectations, Misstatements and Misconduct (London: Sweet and Maxwell, 2009).

56. [1990] 1 WLR 1545.

57. R v Secretary of State for Education and Employment, ex p Begbie [2000] 1 WLR 1115.

58. [2000] 2 AC 326 at 339.

59. Argued by Counsel in Wheeler v Prime Minister, above n 26, Richards LJ doubted whether this was right but did not decided the issue.

60. Findlay, above n 2, at 326–328; R (Abbasi) v Secretary of State for Foreign and Commonwealth Affairs [2002] EWCA Civ 1598, (2002) 99(47) LSG 29 at [91]; and R (Association of British Civilian Internees: Far East Region) v Secretary of State for Defence [2003] QB 1397.

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62. Above n 53.

63. [2007] EWCA Civ 498, [2008] QB 365.

64. Above n 34, at 576.

65. [2002] EWHC 2119 (Admin).

66. See, eg, R v Brent London Borough Council, ex p Gunning (1985) 84 LGR 168.

67. [2005] EWCA Civ 744, [2005] Imm AR 608.

68. Ibid, at [25] per Pill LJ.

69. Ibid, at [47] per Dyson LJ.

70. (1995) 128 ALR 353.

71. Joint judgment of Mason CJ and Deane J at 365.

72. R v Secretary of State for the Home Department, ex p Ahmed and Patel [1998] INLR 570, [1999] COD 69 at 71.

73. (2005) JR 281.

74. Moules, above n 55, at 2-051.

75. (1997) PL 375.

76. Ibid, at 375.

77. Teoh, above n 70, at [31].

78. [2001] 1 AC 410.

79. [2006] EWHC 526 (Admin), [2006] Imm AR 477 per Collins J.

80. M Elliott ‘Legitimate expectations procedure, substance, policy and proportionality’ [2006] CLJ 254.

81. Milk Marketing Board of England and Wales v Tom Parker Farms Ltd [1998] 2 CMLR 721.

82. [1987] 2 All ER 518.

83. Above n 57.

84. Ibid, at 1124.

85. [2002] 1 WLR 237.

86. Craig, P Administrative Law (London: Sweet and Maxwell, 4th edn, 1999) p 619 Google Scholar.

87. Ibid, approved by Schiemann LJ op cit.

88. Begbie, above n 57, at 1133.

89. Moules, above n 55, at 2-022.

90. R (Walmsley) v Lane [2005] EWCA Civ 1540, [2006] RTR 15.

91. R v Secretary of State for the Home Department, ex p Venables [1997] 3 All ER 97 per Lord Browne Wilkinson.

92. Assuming she is empowered to do so.

93. Above n 34.

94. Ibid, at 569–570.

95. R v Secretary of State for the Home Department, ex p Pierson [1998] AC 539 at 591F per Lord Steyn.

96. See Craig, above n 86, pp 615–616.

97. [1971] AC 610, though see contra R v Secretary of State for the Environment, ex p Brent London Borough Council [1982] QB 593.

98. At 631.

99. Above n 80.