Administrative Law in Malaysia
Content
Administrative Law in Malaysia
Wan Azlan Ahmad LLB (Hons), M5c, CLP
Nik Ahmad Kamal Nik Mahmod LLB (Hens), LLM, PhD
Sweet & Maxwell Asia Malaysia • Singapore • Hong Kong
2006
Published in 2006 by Sweet & Maxwell Asia a di,'isioll afThomson Asia Pte Ltd (993622K) No 17, Jalan PJS 7/19 46150 Petaling Jaya, Selangor, Malaysia
Affiliated Companies SINGAPORE SVlreet & Maxv..'ell Asia 6 Battery Road, #29-03 5ingapore 049909
AUSTRALIA Thomson Legal and Regulatory Limited 100 Harris Street Pyrmont, Sydney Australia, :--JSW 2009
NEW ZEALAND Brookers PO Box 6343, Auckland
CANADA Carswell One Corporate Plaza 2075 Kennedy Road Scarborough, Ontario MlT 3V4
UNITED KINGDOM/ EUROPE Sweet & Maxwell Ltd 100 Avenue Road London NW3 3PF
HONG KONG Sweet & Maxwell Asia
a dlVl510TI of The ThOp"'-- --~ _ Corporahon Hong K ntJiT&RI~ArlO:i:\L ISU,MlC 20/F, 5unrung Plaza
10 Hysan Avenue, Hong Kong
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All rights reserved. No part of this publication may be reproduced or transmitted in any form or by any means, or stored in any retrieval system of any nature without prior written permission, except for permitted fair dealing under the Copyright Act 1987. Application for permission for other use of copyright material including permission to reproduce extracts in other published works shall be made to the publishers. Full acknowledgement of the authors, publisher and source must be given. The authors have asserted their moral right under the Copyright Act 1987, to be identified as the authors of this publication. © Wan Azlan Alunad & Nik Alunad Kamal Nik Mahmod
Cover design by Edward Goh Printed by Swan Printing Sdn Bhd
Contents Preface About the Authors Table of Cases... Table of Statutes
. ..
Chapter I The Province of Administrative Law
.
.. vii xi xix xxxvii
1
Nature of administrative law Judicial review Intensity of review Review and appeaL Application for judicial review Habeas corpus Grounds of judicial review Administrative law in Malaysia: The future
1 7 11 13 17 17 17 20
Chapter II Elements of Judicial Review
27
Generally The foundation of judicial review The question of invalidity Ultra vires decisions: Void and voidable Authorities subject to judicial review Entities enjoying monopoly power Inappropriateness of judicial review Prematu.re decisions Civil servants Domestic tribunals Institutions of higher learning Position of the government in tort Military decisions Judicial review, legality and merit Moulding of relief Application for judicial review: Remedies
27 27 28 31 33 37 39 42 43 43 46 47 47 48 51 52
xiv Contents
Chapter III Jurisdictional Challenge
53
Generally jurisdictional law The development oi English law The law before Anisminic The law adopted in Al1ismil1ic Post-Anisminic and beiore Page v Hull University Visitor The current law: Page v Hull University Visitor The law in Malaysia Findings oi iacts and evidence jurisdictional iact doctrine Reaching a conclusion without evidence Irrelevancy Unreasonableness Review oi credibility oi witnesses jurisdictional challenge: Intensity oi review
53 53 54 54 54 57 58 59 62 62 63 66 67 68 69
Chapter IV
Abuse of Discretion Discretionary power generally Purpose Relevancy Unreasonableness Further inquiries Failure to provide reasons Proportionality England Malaysia Fettering oi discretion Abdication Decision taken by the wrong authority Delegation Bad iaith Unlawiul advice and estoppel Authority Evidential requirements Disclosure by applicant Delay Substantive legitimate expectation Category I Category II Category III International treaties and legitimate expectation Discretionary power in the context of national security
71 71 72 75 79 87 87 88 88 90 92 95 96 97 101 101 102 105 106 107 109 110 110 III 116 118
COlltellt~
Chapter V Procedural Ultra Vires at Common Law
xv
119
Cornman law duty to act fairly Right to be heard and written law Nullity The necessity for the right to be heard The right to a hearing Duty to act fairly Procedural fairness and legitimate expectation Preliminary hearings Procedural fairness on account of what was done or said in proceedings Fair Hearing: Some particular areas Licensing Employment Membership of professional bodies Students Members of public services Components of right to a fair hearing Right to know the charges Open mind Sufficiency of time Access to documentation Right to oral hearing Admissibility of evidence Right to legal representation Cross-examination of witnesses Reasons for decisions Failure to provide reasons and abuse of discretion Duty to make further inquiries Delay and procedural unfairness l"Jel1lo judex in re sua " Pecuniary interest Strong personal interest Non-pecuniary interest or promotion of cause The test of bias '"
119 120 122 123 126 127 128 132 133 139 139 140 143 143 147 150 151 153 153 153 163 164 164 165 165 167 168 168 172 172 172 173 175
Chapter VI Statutory Procedure
179
Generally Procedural ultra vires Determining parliamentary intention Meaning of consultation
179 180 183 183
xvi
Contents
Chapter VII
Delegated Legislation
185
Generally Forms of delegated legislation , Circulars, brochures and the like Statutory formula authorising delegated legislation Regulate and prohibit , Challenging the validity of delegated legislation Judicial review of delegated legislation: Generally Presumptive validity of delegated legislation The general framework of review The enabling act is unconstitu tional The delegated legislation is unconstitutionaL Delegated legislation is inconsistent with the parent Act The imposition of fiscal obligations Delegated legislation to be used for proper purpose Reasonableness , Proportionality , Failure to comply with statutory procedures Consultation Certainty of delegated legislation Improper delegation Exclusion of judicial review "As if enacted [by Parliament]" clause Severance Publication "Published" Retrospective application
185 186 186 188 189 190 190 191 191 192 192 192 195 196 196 197 198 200 201 201 201 201 202 202 203 204
Chapter VIII
Procedure and Remedies Judicial review applications Decision , Procedure Leave Time limit for application Stay of proceedings The availability of alternative procedures The English background The Malaysian position Cross-examination and discovery Non-prerogative remedies Injunctions Locus standi Discretion
207 207 207 208 209 210 211 211 211 ,.. 214 218 219 219 222 223
Cmtt'llt:,
Declarations . Deiects justiiying grant oi declaration Standing to sue: Locus standi The case law Conclusion Order 53: "Adversely affected" person Consequence oi the grant oi declaration Prerogative remedies Certiorari and prohibition........................... . Deiects justiiying award Certiorari: The availability of alternative remedies Other grounds oi reiusal Locus standi for certiorari and prohibition Consequence oi quashing :-landamus Deiects justiiying award Grounds oi reiusal........................... . Mandamus: The availability oi alternative remedies Locus standi Hearing oi application ior leave Damages in judicial review proceedings Exclusion of judicial reviev./ "Shall be final" clause "No certiorari" clause "Shall not be called in question in any court oi law" clause Time stipulations Ouster clauses in "special cases" Preventive detention Immigration Emergency (Public Order and Prevention oi Crime) Ordinance 1969 , . Specific Reliei Act 1950, section 44 The making oi applications Writ oi qua warranto Habeas corpus
Chapter IX Government Proceedings Generallv Liability in tort Acts done under prerogative and statutory powers :'\Jature of relief in Government proceedings Anglo-Scottish position Malaysian position Limitation of actions
xvii
223 226 226 228 233 235 236 237 237 240 242 243 244 245 246 246 246 247 247 248 249 250 251 251 252 253 253 254 255 255 256 258 259 259
261 261 262 267 268 269 270 , .. 273
xviii
Contents
Chapter X Liability of Public Authorities in Tort and Restitution Liability in tort: Generally Liability for omissions Negligence in implementing statutory duties Economic loss: Defective premises , The English experience Other common law jurisdictions Malaysia Ste,'eI! Phoa at the Federal Caurt.. Abdul Hamid Mahamad FCj Steve Shim Cj (Sabah & Sarawak) Analysis of Federal Court judgment.. Woolcock Street IntJestnzents , , Workable basis for local law Negligent misstatements Psychiatric illness Exercise of statutory discretion Failure to exercise statutory po\'·;ers , Private law liability in tort of public authorities: Policy considerations , , ,
275 275 276 276 281 282 283 284
,
288
,,
289 290 291 294 295 297 298 299 , 300
Lord Nicholls Lord Rodger Lord Brown Lord Bingham "luisance Breach of statutory duty Misfeasance in public office Damages for misfeasance in public office Liability in restitution Mistaken payments Ultra vires demands
302 303 304 305 307 307 312 313 317 319 326 326 328
Index
331
/D v East Berkshire Comnlll11ity Health
NHS
Wan Azlan Ahmad LLB (Hons), M5c, CLP
Nik Ahmad Kamal Nik Mahmod LLB (Hens), LLM, PhD
Sweet & Maxwell Asia Malaysia • Singapore • Hong Kong
2006
Published in 2006 by Sweet & Maxwell Asia a di,'isioll afThomson Asia Pte Ltd (993622K) No 17, Jalan PJS 7/19 46150 Petaling Jaya, Selangor, Malaysia
Affiliated Companies SINGAPORE SVlreet & Maxv..'ell Asia 6 Battery Road, #29-03 5ingapore 049909
AUSTRALIA Thomson Legal and Regulatory Limited 100 Harris Street Pyrmont, Sydney Australia, :--JSW 2009
NEW ZEALAND Brookers PO Box 6343, Auckland
CANADA Carswell One Corporate Plaza 2075 Kennedy Road Scarborough, Ontario MlT 3V4
UNITED KINGDOM/ EUROPE Sweet & Maxwell Ltd 100 Avenue Road London NW3 3PF
HONG KONG Sweet & Maxwell Asia
a dlVl510TI of The ThOp"'-- --~ _ Corporahon Hong K ntJiT&RI~ArlO:i:\L ISU,MlC 20/F, 5unrung Plaza
10 Hysan Avenue, Hong Kong
_
L {
cfse~,,:aY Bay
\ •. ,
'JNIVERS:'1
~Y:...'\ ~.':'Y:-'_---:--,,;:1 ,-
f
I
(
Copy no:
Date:.?.~.. I~:.:.:. ': ,-
\""'Ct:',. "
(t.
l
'''[)=c-J
.
, ISBN 983-2631-75-0
All rights reserved. No part of this publication may be reproduced or transmitted in any form or by any means, or stored in any retrieval system of any nature without prior written permission, except for permitted fair dealing under the Copyright Act 1987. Application for permission for other use of copyright material including permission to reproduce extracts in other published works shall be made to the publishers. Full acknowledgement of the authors, publisher and source must be given. The authors have asserted their moral right under the Copyright Act 1987, to be identified as the authors of this publication. © Wan Azlan Alunad & Nik Alunad Kamal Nik Mahmod
Cover design by Edward Goh Printed by Swan Printing Sdn Bhd
Contents Preface About the Authors Table of Cases... Table of Statutes
. ..
Chapter I The Province of Administrative Law
.
.. vii xi xix xxxvii
1
Nature of administrative law Judicial review Intensity of review Review and appeaL Application for judicial review Habeas corpus Grounds of judicial review Administrative law in Malaysia: The future
1 7 11 13 17 17 17 20
Chapter II Elements of Judicial Review
27
Generally The foundation of judicial review The question of invalidity Ultra vires decisions: Void and voidable Authorities subject to judicial review Entities enjoying monopoly power Inappropriateness of judicial review Prematu.re decisions Civil servants Domestic tribunals Institutions of higher learning Position of the government in tort Military decisions Judicial review, legality and merit Moulding of relief Application for judicial review: Remedies
27 27 28 31 33 37 39 42 43 43 46 47 47 48 51 52
xiv Contents
Chapter III Jurisdictional Challenge
53
Generally jurisdictional law The development oi English law The law before Anisminic The law adopted in Al1ismil1ic Post-Anisminic and beiore Page v Hull University Visitor The current law: Page v Hull University Visitor The law in Malaysia Findings oi iacts and evidence jurisdictional iact doctrine Reaching a conclusion without evidence Irrelevancy Unreasonableness Review oi credibility oi witnesses jurisdictional challenge: Intensity oi review
53 53 54 54 54 57 58 59 62 62 63 66 67 68 69
Chapter IV
Abuse of Discretion Discretionary power generally Purpose Relevancy Unreasonableness Further inquiries Failure to provide reasons Proportionality England Malaysia Fettering oi discretion Abdication Decision taken by the wrong authority Delegation Bad iaith Unlawiul advice and estoppel Authority Evidential requirements Disclosure by applicant Delay Substantive legitimate expectation Category I Category II Category III International treaties and legitimate expectation Discretionary power in the context of national security
71 71 72 75 79 87 87 88 88 90 92 95 96 97 101 101 102 105 106 107 109 110 110 III 116 118
COlltellt~
Chapter V Procedural Ultra Vires at Common Law
xv
119
Cornman law duty to act fairly Right to be heard and written law Nullity The necessity for the right to be heard The right to a hearing Duty to act fairly Procedural fairness and legitimate expectation Preliminary hearings Procedural fairness on account of what was done or said in proceedings Fair Hearing: Some particular areas Licensing Employment Membership of professional bodies Students Members of public services Components of right to a fair hearing Right to know the charges Open mind Sufficiency of time Access to documentation Right to oral hearing Admissibility of evidence Right to legal representation Cross-examination of witnesses Reasons for decisions Failure to provide reasons and abuse of discretion Duty to make further inquiries Delay and procedural unfairness l"Jel1lo judex in re sua " Pecuniary interest Strong personal interest Non-pecuniary interest or promotion of cause The test of bias '"
119 120 122 123 126 127 128 132 133 139 139 140 143 143 147 150 151 153 153 153 163 164 164 165 165 167 168 168 172 172 172 173 175
Chapter VI Statutory Procedure
179
Generally Procedural ultra vires Determining parliamentary intention Meaning of consultation
179 180 183 183
xvi
Contents
Chapter VII
Delegated Legislation
185
Generally Forms of delegated legislation , Circulars, brochures and the like Statutory formula authorising delegated legislation Regulate and prohibit , Challenging the validity of delegated legislation Judicial review of delegated legislation: Generally Presumptive validity of delegated legislation The general framework of review The enabling act is unconstitu tional The delegated legislation is unconstitutionaL Delegated legislation is inconsistent with the parent Act The imposition of fiscal obligations Delegated legislation to be used for proper purpose Reasonableness , Proportionality , Failure to comply with statutory procedures Consultation Certainty of delegated legislation Improper delegation Exclusion of judicial review "As if enacted [by Parliament]" clause Severance Publication "Published" Retrospective application
185 186 186 188 189 190 190 191 191 192 192 192 195 196 196 197 198 200 201 201 201 201 202 202 203 204
Chapter VIII
Procedure and Remedies Judicial review applications Decision , Procedure Leave Time limit for application Stay of proceedings The availability of alternative procedures The English background The Malaysian position Cross-examination and discovery Non-prerogative remedies Injunctions Locus standi Discretion
207 207 207 208 209 210 211 211 211 ,.. 214 218 219 219 222 223
Cmtt'llt:,
Declarations . Deiects justiiying grant oi declaration Standing to sue: Locus standi The case law Conclusion Order 53: "Adversely affected" person Consequence oi the grant oi declaration Prerogative remedies Certiorari and prohibition........................... . Deiects justiiying award Certiorari: The availability of alternative remedies Other grounds oi reiusal Locus standi for certiorari and prohibition Consequence oi quashing :-landamus Deiects justiiying award Grounds oi reiusal........................... . Mandamus: The availability oi alternative remedies Locus standi Hearing oi application ior leave Damages in judicial review proceedings Exclusion of judicial reviev./ "Shall be final" clause "No certiorari" clause "Shall not be called in question in any court oi law" clause Time stipulations Ouster clauses in "special cases" Preventive detention Immigration Emergency (Public Order and Prevention oi Crime) Ordinance 1969 , . Specific Reliei Act 1950, section 44 The making oi applications Writ oi qua warranto Habeas corpus
Chapter IX Government Proceedings Generallv Liability in tort Acts done under prerogative and statutory powers :'\Jature of relief in Government proceedings Anglo-Scottish position Malaysian position Limitation of actions
xvii
223 226 226 228 233 235 236 237 237 240 242 243 244 245 246 246 246 247 247 248 249 250 251 251 252 253 253 254 255 255 256 258 259 259
261 261 262 267 268 269 270 , .. 273
xviii
Contents
Chapter X Liability of Public Authorities in Tort and Restitution Liability in tort: Generally Liability for omissions Negligence in implementing statutory duties Economic loss: Defective premises , The English experience Other common law jurisdictions Malaysia Ste,'eI! Phoa at the Federal Caurt.. Abdul Hamid Mahamad FCj Steve Shim Cj (Sabah & Sarawak) Analysis of Federal Court judgment.. Woolcock Street IntJestnzents , , Workable basis for local law Negligent misstatements Psychiatric illness Exercise of statutory discretion Failure to exercise statutory po\'·;ers , Private law liability in tort of public authorities: Policy considerations , , ,
275 275 276 276 281 282 283 284
,
288
,,
289 290 291 294 295 297 298 299 , 300
Lord Nicholls Lord Rodger Lord Brown Lord Bingham "luisance Breach of statutory duty Misfeasance in public office Damages for misfeasance in public office Liability in restitution Mistaken payments Ultra vires demands
302 303 304 305 307 307 312 313 317 319 326 326 328
Index
331
/D v East Berkshire Comnlll11ity Health
NHS
