View metadata, citation and similar papers at core.ac.uk brought to you by CORE provided by LSE Theses Online The London School of Economics and Political Science A Structural, Institutionally Sensitive Model of Proportionality and Deference under the Human Rights Act 1998 Alan David Patrick Brady A thesis submitted to the Department of Law of the London School of Economics for the degree of Doctor of Philosophy, London, September 2009 Declaration I certify that the thesis I have presented for examination for the MPhil/PhD degree of the London School of Economics and Political Science is solely my own work other than where I have clearly indicated that it is the work of others (in which case the extent of any work carried out jointly by me and any other person is clearly identified in it). The copyright of this thesis rests with the author. Quotation from it is permitted, provided that full acknowledgement is made. This thesis may not be reproduced without the prior written consent of the author. I warrant that this authorization does not, to the best of my belief, infringe the rights of any third party. Abstract Proportionality is used by the UK Courts when reviewing the Convention-compatibility of the activities of the other branches of government. There are two related problems with the current analysis of proportionality. First, there has been a heavy emphasis on the division of constitutional space between the judiciary and the other branches of government. This focus on spatial conceptions of institutional responsibility has distracted attention from the structure of the relationship between proportionality and deference. The second problem is that there has been insufficient attention paid to the manner in which the test is affected by the distinctions between the different governmental institutions which can be judicially reviewed under the HRA. The individual stages of proportionality are based on certain premises about the institution being reviewed. This needs to be explicit if a sophisticated understanding of proportionality is to be developed. I plan to overcome these two problems by setting out a structural, institutionally sensitive model of proportionality and deference. The model is structural in that it takes account of the operation of deference within the process of proportionality. The model is institutionally sensitive in that it takes account of the differences between the institutions which the courts can review under the HRA. The model is based on the work of Alexy, but adapted for the UK context and developed to make it institutionally sensitive. I trace the operation of this structural model through three institution-specific case studies in order to establish its relevance in the UK. The case studies concern administrative decision-making in immigration cases, rule-making in criminal justice cases and judgments concerning both administrative decisions and legislation in housing cases. This diverse range of subject matter provides the basis for proving the applicability of the structural, institutionally sensitive model, which overcomes the two related problems with the existing analysis. Acknowledgements Thanks in the first instance must go to my supervisors. Professor Conor Gearty, who provided the bulk of the supervision, has been a truly outstanding guide during my doctoral research. His availability, his response time and the quality of his feedback have been incredible and I am extremely grateful to him for his constant support and good humour. Dr Manolis Melissaris, who steered me through the murky waters of German constitutional thought, was also fantastic. He was always approachable and ready to discuss difficult points and I am extremely grateful to him. I have said on many occasions over the past three years that I had won the supervisor lottery and I stand by that statement. It has been a pleasure to work with them both and to get to know them as the kind, warm and witty individuals that they are. Professor Ivana Bacik at Trinity College Dublin was my dissertation supervisor when I was an undergraduate and she has kept in touch ever since and has always been a valued source of support and advice. She was extremely helpful when I originally decided to pursue a doctorate and gave me many insights into how to approach the work. She has also been a constant source of references for funding and teaching jobs and I cannot thank her enough for this. My good friend Dr James Mehigan was in the final two years of his doctorate when I was in the first two years of mine. Having a close friend working through the same experience (but a year ahead) was essential in preserving my sanity, and I thank him for all his words of wisdom, as well as his recent proof reading expertise. Thanks also must go to my friends on the PhD course at LSE. Having a group of engaging people who were experiencing the same things as me was a great help. Discussing my ideas with them was essential to the success of this thesis. I would like to thank Professor Martin Loughlin and Dr Tom Poole, who were my upgrade readers. Their comments and direction helped me to focus on building a plan of work for my research and I have no doubt that this would all have taken a great deal longer without their input. The doctoral programme team at LSE have also been very helpful over the three years of my studies. Mr Alain Pottage, Dr Charlie Webb, Mr Andrew Murray, Dr Nico Krisch and Mrs Rachel Yarham have all played their part in various ways and I am most appreciative. I would like to thank my sister, Eavan Brady, whose charm and good nature have been steadfast throughout this experience and have helped me in ways she will never know. I would never have made it this far without my parents, Dr Mick Brady and Dr Brídín Brady. Their love and support (including substantial financial support) have made my education possible. They instilled in me a strong sense of the importance of knowledge and learning at an early age. I am the man I am today because of them. Finally, and most importantly, I would like to thank my beloved wife, Louise White. Her love and kindness have nurtured me through many difficult times over these three years. Returning home to her warm embrace and smiling countenance each evening has kept me grounded and spurred me on to succeed. The triumphs have been sweeter and the blows greatly cushioned by her mere presence. I would be lost without her and I love her very dearly. My work has been funded in part by the LSE Postgraduate Research Studentship and in part by the Arts and Humanities Research Council’s Doctoral Award. I am very grateful for both. For Louise CHAPTER 1: TWO RELATED PROBLEMS 8 1.1: JUDICIAL REVIEW UNDER THE HRA – PROPORTIONALITY AND DEFERENCE 10 1.2: PROBLEM ONE – THE SPATIAL METAPHOR 14 1.2.1: PROPORTIONALITY AS REASONABLENESS 19 1.2.2: PROPORTIONALITY AS CORRECTNESS 21 1.2.3: THE LIMITATIONS OF THE SPATIAL METAPHOR 23 1.3: PROBLEM TWO – THE LACK OF INSTITUTIONAL SENSITIVITY 29 1.3.1: PROPORTIONALITY AND THE RANGE OF GOVERNMENTAL ACTIVITY 31 1.3.2: INSTITUTIONAL SENSITIVITY AND PROPORTIONALITY 33 1.3.3: INSTITUTIONAL SENSITIVITY AND DEFERENCE 37 1.4: GOALS OF THESIS AND OUTLINE OF CHAPTERS 40 CHAPTER 2: IMPORTING ALEXY: TOWARDS A STRUCTURAL UNDERSTANDING OF PROPORTIONALITY AND DEFERENCE IN THE UK 45 2.1: ELEMENTS OF THE PROPORTIONALITY TEST 48 2.2: THE NATURE OF FUNDAMENTAL RIGHTS NORMS 51 2.3: PROPORTIONALITY AS OPTIMISATION OF PRINCIPLES 62 2.3.1: LEGITIMATE AIM AND SUITABILITY 63 2.3.2: FACTUAL OPTIMISATION 65 2.3.3: LEGAL OPTIMISATION 67 2.3.4: A FACT-SENSITIVE STRUCTURAL MODEL 69 2.4: ALEXY’S THEORY OF DEFERENCE 74 2.4.1: STRUCTURAL DEFERENCE 75 2.4.2: EPISTEMIC DEFERENCE 79 2.4.3: THE LEVEL OF DEFERENCE 82 2.5: THE LIMITATIONS OF ALEXY 86 2.6. CONCLUSION 90 CHAPTER 3: DEVELOPING ALEXY: INSTITUTIONAL SENSITIVITY AND THE STRUCTURAL MODEL OF PROPORTIONALITY AND DEFERENCE 92 3.1: FORMS OF GOVERNMENT ACTIVITY 96 3.2: INSTITUTIONAL SENSITVITY, OPTIMISATION AND DEFERENCE 101 3.2.1: CHOICE OF OBJECTIVES 101 3.3.2: RANGE OF MEASURES 107 3.2.3: SCOPE OF THE DECISION: INDIVIDUAL VS. GENERAL 110 3.3: MULTI-LEVEL DECISION-MAKING 115 3.4: INSTITUTIONAL SENSITIVITY AND THE REASONS FOR DEFERENCE 123 3.4.1: DEMOCRATIC LEGITIMACY 126 3.4.2: INSTITUTIONAL COMPETENCE 132 3.4.3: SECTIONS 3 & 4 OF THE HRA AND PARLIAMENT 135 3.5: CONCLUSION 139 CHAPTER 4: CASE STUDY ONE: PROPORTIONALITY AND ADMINISTRATIVE DECISION-MAKING – IMMIGRATION 143 4.1: THE IDENTIFICATION OF PRINCIPLES 146 4.1.1: HUMAN RIGHTS PRINCIPLES 147 4.1.2: PUBLIC INTEREST PRINCIPLES 153 4.1.3: RATIONAL CONNECTION 161 4.2: FACTUAL OPTIMISATION (MINIMAL IMPAIRMENT) 162 4.3: LEGAL OPTIMISATION (OVERALL BALANCE) 169 4.3.1: LEGAL OPTIMISATION AND EMPIRICAL EPISTEMIC DEFERENCE 173 4.3.2: LEGAL OPTIMISATION AND NORMATIVE EPISTEMIC DEFERENCE 179 4.3.3. LEGAL OPTIMISATION AND DELAY 185 4.4: CONCLUSION 189 CHAPTER 5: CASE STUDY TWO: PROPORTIONALITY AND RULE-MAKING – CRIMINAL JUSTICE 192 5.1: THE IDENTIFICATION OF PRINCIPLES 196 5.1.1: HUMAN RIGHTS PRINCIPLES 197 5.1.2: PUBLIC INTEREST PRINCIPLES 202 5.1.3: RATIONAL CONNECTION 209 5.2: CHOICE OF LEAST INTRUSIVE MEANS: FACTUAL OPTIMISATION 209 5.2.1: FACTUAL OPTIMISATION AND STRUCTURAL DEFERENCE 213 5.2.2: FACTUAL OPTIMISATION AND EMPIRICAL EPISTEMIC DEFERENCE 221 5.2.3. FACTUAL OPTIMISATION AND SECTION 4 OF THE HRA 227 5.3: OVERALL BALANCE: LEGAL OPTIMISATION 229 5.3.1: LEGAL OPTIMISATION, EMPIRICAL EPISTEMIC DEFERENCE AND THE GENERAL SCOPE OF RULES 234 5.3.2: LEGAL OPTIMISATION AND NORMATIVE EPISTEMIC DEFERENCE 236 5.4: THE REASONS FOR DEFERENCE 237 5.5: CONCLUSION 242 CHAPTER 6: CASE STUDY THREE: PROPORTIONALITY ACROSS THE RANGE OF GOVERNMENT ACTION - HOUSING 245 6.1: THE IDENTIFICATION OF PRINCIPLES 247 6.1.1: HUMAN RIGHTS PRINCIPLES 247 6.1.2: PUBLIC INTEREST PRINCIPLES 251 6.2: FACTUAL AND LEGAL OPTIMISATION AT INDIVIDUAL LEVELS OF GOVERNMENT 257 6.3: FACTUAL AND LEGAL OPTIMISATION IN MULTI-LEVEL CASES 271 6.4: CONCLUSION 291 CHAPTER 7: CONCLUSION 294 7.1: A STRUCTURAL, INSTITUTIONALLY SENSITIVE MODEL OF PROPORTIONALITY AND DEFERENCE 295 7.1.1: THE STRUCTURE OF PROPORTIONALITY AND DEFERENCE 296 FIGURE 1: DIAGRAM OF THE STRUCTURAL MODEL OF PROPORTIONALITY AND DEFERENCE 300 7.1.2: INSTITUTIONAL SENSITIVITY 300 7.2: THE MODEL AT WORK IN THE HRA CASE LAW 303 7.2.1: THE MODEL IN PURE ADMINISTRATION CASES 304 7.2.2: THE MODEL IN PURE RULE-MAKING CASES 304 7.2.3: THE MODEL IN MULTI-LEVEL DECISION CASES 305 7.3: OUTCOMES OF THIS THESIS 306 7.3.1: SCOPE FOR FURTHER STUDY 307 7.3.2: AVOIDANCE OF THE RISK OF INSTITUTIONALLY PERVERSE REASONING 308 7.3.3: FRAMEWORK FOR NORMATIVE DEBATE 309 7.4: FINAL REMARKS 309 BIBLIOGRAPHY 311 8 Chapter 1: Two related problems The principle of proportionality is now a standard test used by the UK Courts to assess whether governmental activity violates many of the individual rights set out in the European Convention on Human Rights (‘the Convention’), which was incorporated into domestic law by the Human Rights Act 1998 (‘the HRA’).1 The concept of proportionality is closely related to the self-restraining judicial principle that when the courts engage in judicial review they should pay some deference to the judgment of the original decision-maker. To date, there has yet to be a sophisticated analysis of proportionality and deference under the HRA. It is my contention that such an analysis has been prevented by two problems. The first problem is the ‘spatial metaphor’2 and the second problem is lack of what I call ‘institutional sensitivity.’ The spatial metaphor describes deference as something which is in opposition to proportionality rather than something which can be integrated into it. The lack of institutional sensitivity arises from a failure adequately to recognise that there are differences between the institutions of government which are 1 See R (Daly) v Secretary of State for the Home Department [2001] UKHL 26; [2001] 2 AC 532 and R v A (No 2) [2001] UKHL 25; [2002] 1 AC 45. Daly was concerned with the right to correspond with legal representatives and R v A was concerned with the right to fair trial. 2 This phrase was coined by Murray Hunt. See Hunt, M. ‘Sovereignty’s Blight: Why Contemporary Public Law Needs the Concept of “Due Deference”’ in Bamforth, N. and Leyland, P. (eds.) Public Law in a Multi-layered Constitution (Oxford: Hart Publishing, 2003). 9 subjected to proportionality review under the HRA. Some of those differences can have a significant effect on the operation of proportionality and deference. These two problems are closely related to one another. The failure to overcome a spatial model of the relationship between proportionality and deference has hampered attempts to make deference more institutionally sensitive. Conversely, the failure to develop an institutionally sensitive model of proportionality has undermined the understanding of the various stages of the proportionality test in a manner which further entrenches the spatial metaphor. It is not possible to solve one of these problems without also solving the other. In this thesis, I am seeking to address both problems. In this introductory chapter I give a detailed explanation of the difficulties caused by the spatial metaphor and the lack of institutional sensitivity. In the remainder of the thesis, I set out a structural model of proportionality and deference which I argue gives a sophisticated account of the relationship between the two, and in particular overcomes the weaknesses in the spatial metaphor. I develop this model to take account of relevant institutional characteristics of governmental bodies which are judicially reviewed under the HRA; thus making the model ‘institutionally sensitive’. This institutional sensitivity enables me to show the manner in which the specific features of a governmental body being reviewed can impact upon the operation of the proportionality test under the HRA. I then show that the model can be seen to work in existing HRA case law in three thematic case studies. The application of the model in these case studies will show that there is an order to the existing HRA case law that has not always been previously evident. Before explaining the two problems with which this chapter is concerned, I will briefly set out the parameters of proportionality and deference under the HRA. 10 1.1: JUDICIAL REVIEW UNDER THE HRA – PROPORTIONALITY AND DEFERENCE The possible introduction of proportionality into UK law was mooted for some time prior to the HRA3 but the absence of a fundamental rights document impeded it.4 The proportionality test has been used for some time by the European Court of Human Rights (‘the ECHR’) when interpreting the Convention.5 The House of Lords has accepted that the Convention requires the use of the proportionality test.6 It is therefore understandable that it was imported into the UK in the aftermath of the passage of the HRA. The courts have confirmed that (for the time being at least) proportionality is not an independent head of review and it is only applicable where a Convention right is engaged.7 Most Convention rights can be limited by the state, provided that the limitation meets the standard of proportionality.8 The proportionality test entails a series of questions, which a reviewing court will ask when examining the Convention compatibility of a government measure which infringes a Convention right. While the precise formulation 3 Council of Civil Service Unions v Minister of State for the Civil Service [1985] AC 374; R v Secretary of State for the Home Department ex parte Brind [1991] 1 AC 696; R v Ministry of Defence ex parte Smith [1996] QB 517. See also Jowell, J. and Lester, A. ‘Beyond Wednesbury: Substantive Principles of Administrative Law’ [1987] PL 368; and Jowell, J. and Lester, A. ‘Proportionality: Neither Novel Nor Dangerous’ in Jowell J. and Oliver, D. (eds.) New Directions in Judicial Review (London: Stevens, 1988). 4 See de Búrca, G. ‘Proportionality & Wednesbury Unreasonableness: The Influence of European Legal Concepts on UK Law’ in Andenas, M. English Public Law and the Common Law of Europe (London: Key Haven, 1998); and Elliott, M. ‘The Human Rights Act 1998 and the Standard of Substantive Review’ (2001) 60 CLJ 301. 5 See Sunday Times v UK (1979-80) 2 EHRR 245; Handyside v UK (1979-80) 1 EHRR 737. 6 R (ProLife Alliance) v British Broadcasting Corporation [2003] UKHL 23; [2004] 1 AC 185, at 202 per Laws LJ. 7 See Association of British Civilian Internees – Far Eastern Division v Secretary of State for Defence [2003] EWCA Civ 473. Although it has been recognised that proportionality might eventually become an independent head of review, the House of Lords has recently declined to decide this issue conclusively: see Somerville v Scottish Ministers [2007] UKHL 44; [2007] 1 WLR 2734, per Lord Hope and Lord Rodger. 8 It is generally accepted that proportionality does not apply to Articles 2, 3 4 & 7 of the Convention. See further Palmer, S. ‘A Wrong Turning: Article 3 ECHR and Proportionality’ (2006) 65 CLJ 438. However, this has been disputed by Simon Atrill: see Atrill, S. ‘Keeping the Executive in the Picture: A Reply to Professor Leigh’ [2003] PL 41.