⇒ Amenability is concerned with the question of who may be judicially reviewed.
⇒ Thus far, these notes have been talking of public bodies with statutory or prerogative jurisdiction.
⇒ But some bodies may act without any such formal power (statutory or prerogative), or may have little or no formal legal identity, and yet be amenable to judicial review!
⇒ Datafin were looking to takeover a company, but complained to the Panel on Takeovers and Mergers about the company (to be taken over) acting in concert with other parties in breach of the City Code.
⇒ The Panel dismissed the complaint, and the claimant sought judicial review of that dismissal. The question was, was the panel an amenable body for judicial review purposes?
⇒ The High Court dismissed the action because the body was not thought to be susceptible to judicial review.
⇒ The Court of Appeal heard an appeal on the jurisdictional (amenability) question, and the substantive application.
⇒ The claimant (a racehorse owner) sought judicial review of decision to disqualify his filly (i.e. a young female horse) and fine the claimant when a banned substance was found in the horse’s urine
⇒ The Jockey Club had been incorporated by Royal Charter, but gained its powers from the issuance of licences and permits in a system of sport self-regulation.
⇒ The two leading cases are very similar: both bodies had a precarious public existence. But the source of the power is largely irrelevant; does the body exercise functions that are public law functions?
⇒ We must also look at the amenability (i.e. susceptibility to judicial review) of bodies under the Human Rights Act 1998
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Section 6 HRA
⇒ (1) It is unlawful for a public authority to act in a way which is incompatible with a Convention right. […]
⇒ (3) In this section “public authority” includes -
⇒ The Wallbanks owned a farm on church land. As ‘lay rectors’ they would be liable for any repairs needed to the church under archaic laws dating back to the 16th century (although underpinned by the Chancel Repairs Act 1932).
⇒ A legal question for the courts was whether the HRA applied: was the church parish a public authority under s.6(3)?
⇒ The Wallbanks later sold their house to meet the cost of the bill (and legal costs of £250,000).
⇒ The House of Lords in Aston Cantlow and Wilmcote v Wallbank distinguished between ‘core’ and ‘hybrid’ public bodies
⇒ ‘Core’ public bodies bodies are those which are ordinarily subject to review by ECtHR: those public bodies that are the state or emanations of the state (e.g. local government, the police, etc.)
⇒ ‘Hybrid’ public authorities are those that are sometimes public bodies, sometimes private bodies
⇒ One key distinction explored by Lord Nicholls is on the question of whether a particular public authority is able to bring cases under HRA (i.e. have standing):
⇒ Having regard to the church parish’s functions, many of which were private in nature, the church parish was considered to be ‘hybrid public authority’ under s.6(3) HRA.
⇒ The question remains: does the exercise of the church’s rights to chancel repair contributions from nearby landowners express a public law or private law function?
⇒ Let’s think about the Church of England’s functions:
⇒ Aston Cantlow and Wilmcote v Wallbank (above) is the leading case on functional public authorities (i.e. hybrid public authorities)
⇒ The courts have been trying to grapple with the concept of hybrid public authorities (or ‘functional public authorities’) in the context of the contracting out of statutory functions.
⇒ This is distinctly modern concern.
⇒ With these cases, the pattern is the same:
⇒ Donoghue as provided with temporary non-secure tenancy by a local authority, pending determination of whether she was intentionally homeless. The property was transferred to a housing association, with a distinct legal identity to the local authority. The housing association served notice to quit, and pursued a possession order in the courts.
⇒ Donoghue sought to argue that her rights under Article 8 ECHR (i.e. right to respect of one’s private and family life) were engaged, and sought an adjournment to the possession proceedings so that the point could be argued about her article 8 rights.
⇒ The trial judge refused the adjournment on the basis that, if her Article 8 rights were engaged, there would be no infringement of that right. She appealed to the Court of Appeal. The Court of Appeal agreed on the point that no Article 8 infringement would occur.
⇒ But crucially, the Court of Appeal did rule that Poplar Housing was a public authority under s.6(3) having regard to:
⇒ The claimants were long-stay residents of a care home run by Leonard Cheshire, and funded by the local authority or health authority as appropriate.
⇒ Leonard Cheshire sought to close the care home despite earlier assurances that residents would be able to stay there as long as then needed the accommodation.
⇒ The claimants challenged the decision under the HRA, on the grounds that the decision to close the care home would be in contravention of Article 8 ECHR (i.e. right to respect of one’s private and family life)
⇒ The court had to first determine whether Leonard Cheshire fell under s.6(3) as a functional public authority (or ‘hybrid’ public authority)
⇒ The court said that Leonard Cheshire wasn’t a functional public authority:
⇒ A crucial difference between the cases seems to be that Poplar Housing was something of an alter ego of the housing authority - the housing authority set Poplar Housing up, and they shared many resources and facilities.
⇒ Leonard Cheshire was distinct, and thus the ‘core’ local authority or health authority remained the amenable public body in the absence of the contracting out of liabilities.
⇒ The claimant was 84 years old, and required residential care under s.21 of the National Assistance Act 1948. The care was provided by Southern Cross: a for-profit firm operating care homes for the benefit of public and private residents. The majority of the claimant’s fees were met by the local authority. There was a disagreement between the claimant’s relatives and the care home, so the care home simply decided to terminate the care contract and remove the claimant from the home.
⇒ A claim was brought under the HRA, and the question for the court was whether Southern Cross was a functional public authority, such that it would be bound by Article 8 ECHR (i.e. right to respect of one’s private and family life)
⇒ The assistance being provided by the State is to put the claimant in a comparable position to Southern Cross’ private residents i.e. the support is financial. To decide otherwise would be to give the state-funded residents more rights than the private residents, i.e. public law rights in addition to contractual rights
⇒ Imagine the following hypothetical care residents:
⇒ Lord Mance does not want to place Person B in a stronger position than Person C.
⇒ Bingham said that “the greater the state’s involvement in making payment for the function in question, the greater (other things being equal) the assumption of responsibility”
⇒ Lady Hale: “This was a function performed for the appellant pursuant to statutory arrangements, at public expense and in the public interest. I have no doubt that Parliament intended that it be covered by section 6(3)(b). The Court of Appeal was wrong to reach a different conclusion on indistinguishable facts in Leonard Cheshire.”
⇒ S.145 Health and Social Care Act 2008 reverses the effect of YL in the context of publicly funded care under the 1948 Act:
⇒ But YL is still relevant and applicable to the general approach taken by the courts on this interpretation of functional public authorities under s.6(3) HRA
⇒ The claimant was a tenant who had most (but not all) of their rent paid for by the local authority. The registered social landlord sought possession of the property when the rent fell into arrears. The claimant sought to rely on her Convention rights in contesting the possession order. The Court of Appeal held that the landlord was a functional public authority (i.e. a hybrid public body)
⇒ The CA had regard to:
⇒ The CA further considered that:
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