F01 Constitutional and Administrative Law 76048 Contents.indd 3 5/23/17 7:06 PM Ninth Edition Constitutional and Administrative Law ALEX CARROLL Harlow, England • London • New York • Boston • San Francisco • Toronto • Sydney • Dubai • Singapore • Hong Kong Tokyo • Seoul • Taipei • New Delhi • Cape Town • São Paulo • Mexico City • Madrid • Amsterdam • Munich • Paris • Milan F01 Constitutional and Administrative Law 76048 Contents.indd 1 17/05/2017 21:14 PEARSON EDUCATION LIMITED Edinburgh Gate Harlow CM20 2JE United Kingdom Tel: +44 (0)1279 623623 Web: www.pearson.com/uk First published 1998 (print) Second edition published 2002 (print) Third edition published 2003 (print) Fourth edition published 2007 (print) Fifth edition published 2009 (print) Sixth edition published 2011 (print) Seventh edition published 2013 (print and electronic) Eighth edition published 2015 (print and electronic) Ninth edition published 2017 (print and electronic) © Pearson Education Limited 1998, 2002, 2003, 2007, 2009, 2011 (print) © Pearson Education Limited 2013, 2015, 2017 (print and electronic) The right of Alex Carroll to be identified as author of this work has been asserted by him in accordance with the Copyright, Designs and Patents Act 1988. The print publication is protected by copyright. Prior to any prohibited reproduction, storage in a retrieval system, distribution or transmission in any form or by any means, electronic, mechanical, recording or otherwise, permission should be obtained from the publisher or, where applicable, a licence permitting restricted copying in the United Kingdom should be obtained from the Copyright Licensing Agency Ltd, Barnard’s Inn, 86 Fetter Lane, London EC4A 1EN. The ePublication is protected by copyright and must not be copied, reproduced, transferred, distributed, leased, licensed or publicly performed or used in any way except as specifically permitted in writing by the publishers, as allowed under the terms and conditions under which it was purchased, or as strictly permitted by applicable copyright law. Any unauthorised distribution or use of this text may be a direct infringement of the author’s and the publisher’s rights and those responsible may be liable in law accordingly. Contains public sector information licensed under the Open Government Licence (OGL) v3.0. http://www.nationalarchives.gov.uk/doc/open-government-licence/version/3/. Contains Parliamentary information licensed under the Open Parliament Licence (OPL) v3.0. http://www.parliament.uk/site-information/copyright/open-parliament-licence/. Pearson Education is not responsible for the content of third-party internet sites. ISBN: 978-1-292-17604-8 (print) 978-1-292-17605-5 (PDF) 978-1-292-17606-2 (ePub) British Library Cataloguing-in-Publication Data A catalogue record for the print edition is available from the British Library Library of Congress Cataloging-in-Publication Data Carroll, Alex, 1947– author. Constitutional and administrative law / Alex Carroll, Manchester Metropolitan University. Ninth edition. | Harlow, England : Pearson Education Limited, 2017. | Includes bibliographical references. LCCN 2017011135| ISBN 9781292176048 (Print) | ISBN 9781292176055 (PDF) | ISBN 9781292176062 (ePub) LCSH: Constitutional law—Great Britain. | Administrative law—Great Britain. LCC KD3930 .C37 2017 | DDC 342.41—dc23 LC record available at https://lccn.loc.gov/2017011135 10 9 8 7 6 5 4 3 2 1 21 20 19 18 17 Print edition typeset in 9/12pt Stone Serif ITC Pro by SPi Global Printed by Ashford Colour Press Ltd, Gosport NOTE THAT ANY PAGE CROSS REFERENCES REFER TO THE PRINT EDITION F01 Constitutional and Administrative Law 76048 Contents.indd 2 17/05/2017 21:14 This book is dedicated to the memory of Robert Alan Carroll 1949–2011 F01 Constitutional and Administrative Law 76048 Contents.indd 3 17/05/2017 21:14 F01 Constitutional and Administrative Law 76048 Contents.indd 4 17/05/2017 21:14 Brief contents Acknowledgement xv Preface xvii Table of cases xix Table of statutes xlii Table of statutory instruments li Table of treaties and conventions lii Part 1 Fundamental principles 1 1 Introduction to constitutional and administrative law 3 2 The Characteristics of the Constitution 15 3 Sources of constitutional and a dministrative law 56 Part 2 Parliament and the European Union 71 4 The European Union: institutions of government and sources of law 73 5 The legislative sovereignty of the Westminster Parliament 102 Part 3 The composition and workings of Parliament 129 6 The franchise and the electorate 131 7 The House of Commons: Members of Parliament 141 8 The House of Commons: principal functions 151 9 The House of Lords 197 10 Parliamentary privilege 225 Part 4 The Executive 249 11 The Prime Minister and Cabinet 251 12 The royal prerogative 275 13 Legal liability of the crown and public authorities 295 v F01 Constitutional and Administrative Law 76048 Contents.indd 5 17/05/2017 21:14 BRIEF CONTENTS Part 5 Judicial supervision of executive power 337 14 Judicial review: nature and grounds for 339 15 Judicial review: applications for, exclusion of, and exclusivity 386 Part 6 Human rights 411 16 The European Convention on Human Rights 413 17 The human rights act 1998 498 18 Police powers, personal liberty and privacy 545 19 Restrictions on the rights of freedom of assembly and association 593 20 Restrictions on the rights of freedom of expression and information 614 21 Freedom and emergency powers 651 Part 7 Tribunals, inquiries and complaints procedures 677 22 Tribunals and inquiries 679 23 Public services ombudsmen 701 Appendix ‘Brexit’ 717 Glossary 745 Index 758 vi F01 Constitutional and Administrative Law 76048 Contents.indd 6 17/05/2017 21:14 Contents Acknowledgement xv Preface xvii Table of cases xix Table of statutes xlii Table of statutory instruments li Table of treaties and conventions lii Part 1 Fundamental principles 1 1 Introduction to constitutional and administrative law 3 Objectives 3 What is a constitution? 3 The British constitution 4 The cultural dimension 4 Distinguishing between constitutional law and administrative law 5 The terminology of constitutional and administrative law 5 The geography of the constitution 11 The European dimension 14 Summary 14 References 14 Further reading 14 2 The characteristics of the constitution 15 Objectives 15 Introduction 15 The unwritten constitution 15 Flexibility 19 Unitary 20 Constitutional monarchy 31 Bicameral sovereign Parliament 35 Representative democracy 35 Responsible government 39 The separation of powers 40 The rule of law 48 The European dimension 54 The European Convention on Human Rights 54 Summary 55 vii F01 Constitutional and Administrative Law 76048 Contents.indd 7 17/05/2017 21:14 CONTENTS References 55 Further reading 55 3 Sources of constitutional and administrative law 56 Objectives 56 Introduction 56 Legislation 57 Judicial decisions 58 Constitutional conventions 60 European Union law 68 European Convention on Human Rights 69 The law and custom of Parliament 69 Summary 69 References 70 Further reading 70 Part 2 Parliament and the European Union 71 4 The European Union: institutions of government and sources of law 73 Objectives 73 Introduction 73 Origins and development 74 Institutions of law and government 79 Sources of EU law 91 Summary 101 References 101 Further reading 101 5 The legislative sovereignty of the Westminster Parliament 102 Objectives 102 Introduction 102 Application 104 Possible legal limitations 112 Political restraints 119 The relationship between EU law and Acts of Parliament 121 Sovereignty and the Rule of Law: a new hypothesis of constitutionalism 123 Summary 127 References 127 Further reading 127 Part 3 The composition and workings of Parliament 129 6 The franchise and the electorate 131 Objectives 131 Introduction 131 viii F01 Constitutional and Administrative Law 76048 Contents.indd 8 17/05/2017 21:14 CONTENTS Qualifications 132 Casting the vote 137 Disqualifications 138 Special categories of voters 138 Summary 140 Further reading 140 7 The House of Commons: Members of Parliament 141 Objectives 141 Disqualifications 141 Effects of disqualification 144 Role and functions of MPs 145 The relationship between MP and party 146 The Recall of MPs Act 2015 148 Gender, ethnicity, background, and related matters 149 Summary 150 References 150 Further reading 150 8 The House of Commons: principal functions 151 Objectives 151 Introduction 151 Legislation 152 Scrutiny of executive action 176 Scottish and Welsh affairs at Westminster 187 Northern Irish affairs at Westminster 188 Financial proceedings 188 Other functions of the House of Commons 194 Summary 196 References 196 Further reading 196 9 The House of Lords 197 Objectives 197 Origins and composition 197 Types of peers 199 Disclaimer and disqualifications 201 Attendance 202 Powers 203 Functions 204 Proposals for reform 211 Summary 224 References 224 Further reading 224 10 Parliamentary privilege 225 Objectives 225 Nature and sources 225 ix F01 Constitutional and Administrative Law 76048 Contents.indd 9 17/05/2017 21:14