ADMINISTRATIVE LAW PBL 4001W Course Outline First Semester 2011

This outline must be read in conjunction with the General Introduction handed out in the first week of classes. As will be seen, I will attempt in the first semester to achieve a fairly detailed treatment of almost all the topics that make up the course, leaving the second semester to a detailed consideration of a limited number of the most important cases, as well as some discussion of comparative and global administrative law. In this way, I hope that knowledge of the basic principles will be deepened and integrated, within the framework set out below. I have prescribed a number of pieces of reading with which I expect full familiarity. In addition, there is a list of relevant cases and of recommended reading, all of which will assist you, both this year and in the future. This outline and these lists of readings build on and revise those developed by various lecturers over the past ten years and I wish to record my appreciation of their work. Hugh Corder

1. INTRODUCTION TO ADMINISTRATIVE LAW

The objectives of this topic are to: Define administrative law and its relationship with constitutional law; Provide a historical background to the development of administrative law in South Africa, and the reasons for the inclusion of the right to administrative justice in the Constitution; Provide an overview of the developments in administrative law in South Africa since 1994; and Understand and appreciate the significance of the application of the separation of powers doctrine in the context of administrative law. Prescribed reading Hoexter 2- 12. H Corder Administrative justice in the final Constitution (1997) 13 South African Journal of Human Rights 28-43.
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H Corder Reinventing Administrative Law in South Africa in Chris Finn (Ed) Sunrise or Sunset? Administrative Law for the New Millennium (2000), at 100 - 115. Sachs and Diamond v Minister of Justice 1934 AD 11, from 33 to 41. Johannesburg Consolidated Investment Co v Johannesburg Town Council 1903 TS 111 to 130 Recommended reading Asimow Administrative law under South Africas final Constitution: the need for an Administrative Justice Act(1996) SALJ 613.

2. THE RELATIONSHIP BETWEEN ADMINISTRATIVE LAW AND DEMOCRACY: THE NEW AND THE OLD
This topic aims to: investigate the extent to which the form, content and institutions of administrative law are integral to the establishment and maintenance of a democratic state and the Constitution; demonstrate how history, traditions and practice of government affect the legal and judicial policy with regard to regulation of the exercise of executive authority and discretion; define the rule of law and its applicability to South Africas post apartheid administrative law; define the concept of judicial deference and its applicability in this field; and provide insights into the various models of administrative law. Prescribed reading D Davis Administrative justice in a democratic South Africa (1993) Acta Juridica 21-34. E Mureinik Reconsidering review: Participation and accountability (1993) Acta Juridica 35-46. H Corder Administrative justice: A cornerstone of South Africa's democracy' 1998 (14) SAJHR 38-59. DM Davis To defer and then when? Administrative law and constitutional democracy (2006) Acta Juridica 23-40.

Etienne Mureinik A Bridge to Where? Introducing the Interim Bill of Rights (1994) 10 SAJHR 31-32 and 38-44. Relevant Cases President of the RSA v Sarfu 1999 (10) BCLR 1059 (CC) [132][139]. Pharmaceutical Manufacturers Association of SA v President of the RSA 2000 (2) SA 674 (CC); 2000 (3) BCLR 241 (CC), at [45]. Logbro Properties CC v Bedderson NO and others 2003 (2) SA 460 (SCA), [20] [22]. Bato Star Fishing (Pty) Ltd v Minister of Environmental Affairs and Tourism and Others 2004 (4) SA 490 (CC); 2004 (7) BCLR 687 (CC), [45] [48]. Recommended reading Hoexter 67-76. De Ville 13 34. DM Davis Administrative justice: A judicial perspective in H Corder and L van de Vijver (eds) Realising administrative justice (Cape Town: Siber Ink, 2002) 69.

3. THE RELATIONSHIP BETWEEN THE CONSTITUTION, PAJA AND THE COMMON LAW
The objectives of this topic are to demonstrate how the Constitution and the PAJA have affected the common law relating to judicial review in South Africa; determine the significance of the common law relating to judicial review in the constitutional era; and explore the procedural implications of PAJA with regard to how to commence an action for judicial review. Prescribed reading Hoexter 12 14; 28; 110-114. I Currie What difference does the Promotion of Administrative Justice Act make to administrative law (2006) Acta Juridica 325. Pharmaceutical Manufacturers Association of SA v President of the RSA 2000(2) SA 674 (CC); 2000 (3) BCLR 241 (CC). Relevant cases

Commissioner of Customs and Excise v Container Logistics (Pty) Ltd 1999(3) SA 771 (SCA) at [19] to [21]. Minister of Health and another v New Clicks SA (Pty) Ltd & others 2005 JOL 15636 (CC); 2006 (2) SA 311 (CC); 2006 (1) BCLR 1 (CC), paras [92] [97], [421] 438]. Bato Star Fishing (Pty) Ltd v Minister of Environmental Affairs and Tourism and Others 2004 (4) SA 490 (CC) 2004 (7) BCLR 687 (CC), [20] [26]. Zondi v MEC for Traditional & Local Govt Affairs 2005 (3) SA 589 (CC) [99] 103]. Fedsure Life Assurance v Greater Transitional Metropolitan Council 1998 (12) BCLR 1458 (CC) [96] [114]. President of the RSA v Sarfu 1999 (10) BCLR 1059 (CC) [132] [139]. SASOL Oil (Pty) Ltd v Metcalf NO 2004 (5) SA 161 (W), at [7]. Recommended reading I Currie & J de Waal The Bill of Rights Handbook (Juta: 2005), chapter 29, pp. 644 650.

4. SOURCES OF ADMINISTRATIVE AUTHORITY

The aim of this topic is to examine the following sources of administrative and public authority: the Constitution (and in particular the empowerment of the executive), legislation, the common law; the former prerogative powers, African customary law, estoppel and waiver. Prescribed reading Hoexter 12 22. T Bennett Administrative Law Controls Over Chiefs Customary Powers of Removal (1993) 110 SALJ 276-291. President of the RSA v Hugo 1997(4) SA 1 (CC); 1997 (6) BCLR 708 (CC) at paras [1] [29]. Relevant cases Bato Star Fishing (Pty) Ltd v Minister of Environmental Affairs and Others 2004(4) SA 490 (CC); 2004(7) BCLR 687, paras [20] to [27]. Pharmaceutical Manufacturers Association of South Africa: In re ex Parte President of the Republic of South Africa and others 2000(2) SA 674 (CC); 2000(3) BCLR 241 (CC) paras [15] to [57], para [85] and para [90].
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President of the RSA v SARFU 2000(1) SA 1 (CC); 1999 (10) BCLR 1059 (CC) at [144] [149]. City of Tshwane Metropolitan Municipality v RPM Bricks (Pty) Ltd [2007] SCA 28 (RSA) South African Co-operative Citrus Exchange Ltd v Director-General Trade and Industry and Another 1997 (3) SA 236 (SCA). Eastern Metropolitan Substructure v Peter Klein Investments (Pty) Ltd 2001 (4) SA 661 (W). Durban City Council v Glenore Supermarket and Caf 1981 (1) SA 470 (D). Eastern Cape Provincial Government v Contractprops 25 (Pty) Ltd 2001 (4) SA 142 (SCA).

5. THE PUBLIC/PRIVATE DIVIDE

Administrative law is said to apply where public power is exercised or a public function is discharged. The dividing line between public power and private power is not a bright one, especially given the developments of the past thirty years, in a rapidly globalising world. In this section, we explore the following issues: The criteria to be used to determine publicness; Whether a private body can wield public power or fulfil a public function and Whether a public authority can in certain circumstances engage in private activities Prescribed reading Alfred Cockrell Can you Paradigm? Another Perspective on the Public Law/Private Law Divide 1993 Acta Juridica 227-247. Alfred C Aman Administrative Law in a New Century in M.Taggart (ed) The Province of Administrative Law (1997) at 90-117. Greys Marine Hout Bay (Pty) Ltd and Others v Minister of Public Works and Others 2005 (6) SA 313 -327 (SCA). Recommended reading DM Davis Public Power: Do Administrative Lawyers really Care? in Corder and Maluwa (eds) Administrative Justice in Southern Africa (1997) at 43-52.

6. STATE LIABILITY: ADMINISTRATIVE ACTION AND CONTRACT

The objective is to consider the application of contractual remedies to administrative action. Prescribed reading Hoexter 147-59; 176-83; 193-99; 288-90; 397-404. R Stacey Administrative Law relationships (2008) SALJ 595-622. in public sector employment

C Hoexter Contracts in Administrative Law: Life after formalism? (2004) 121 SALJ 595- 618. Relevant cases Transnet Ltd and Others v. Chirwa [2008] 2 BLLR 97 (CC) [180] [194] Government of the Province of the Eastern Cape v Frontier Safaries (Pty) Ltd 1998 (2) SA 19 (SCA). Greater Johannesburg Transitional Metropolitan Council v Eskom 2001 (1) SA 866 (SCA). Premier of the Free State Provincial Government and Others v Firechem Free State (Pty) Ltd 2000 (4) SA 413 (SCA). Dilokong Chrome Mines (Edms) Bpk v Direkteur-Generaal, Department van Handel en Nywerheid 1992 (4) SA 1 (A), especially at 21G-22B. Olitziki Property Holdings v State Tender Board 2001 (8) BCLR 779 (SCA). Knop v Johannesburg City Council 1995 (2) SA 1 (A). Recommended reading D M Pretorius The defence of the realm: Contract and natural justice' (2002) 119 SALJ 374.

7. STATE LIABILITY: ADMINISTRATIVE ACTION AND DELICT

The objective is to:

highlight the relevance of private remedies to redressing abuses of public power; and in particular consider the application of delictual remedies to administrative action. Prescribed reading Hoexter 466-71. Knop v Johannesburg City Council 1995 (2) SA 1 (A). Steenkamp NO v Provincial Tender Board, Eastern Cape 2007 (3) SA 121 (CC). Relevant cases Dendy v University of the Witwatersrand and others 2005 (5) SA 357 (W). Dilokong Chrome Mines (Edms) Bpk v Direkteur-Generaal, Department van Handel en Nywerheid 1992 (4) SA 1 (A), especially at 21G-22B. Minister of Safety and Security v Hamilton 2004 (2) SA 216 (SCA). Minister of Police v Rabie 1986 (1) SA 117(A). Premier, Western Cape v Faircape Property Developers (Pty) Ltd 2003 (6) SA 13 (SCA). Recommended reading De Ville 353-363

8. INTRODUCTION TO JUDICIAL REVIEW

The objective here is to: compare and contrast review and appeal; critically examine the theoretical justifications for judicial review including the doctrines of legality and ultra vires; and explore how the Constitution has affected the traditional justifications for judicial review. Prescribed reading Hoexter 55-69, 103-110. C Hoexter The Future of Judicial Review in South African Administrative Law (2000) 117 SALJ 484-519. D Dyzenhaus The Pasts and Future of the Rule of Law in South Africa (2007) 4 SALJ 734-761.

Relevant cases Bato Star Fishing (Pty) Ltd v Minister of Environmental Affairs and Tourism and Others 2004 (4) SA 490 (CC); 2004 (7) BCLR 687 (CC) at [22] . Pharmaceutical Manufacturers Association of SA v President of the RSA 2000 (3) BCLR 241 (CC) at [33] [45]. Minister of Health and another v New Clicks SA (Pty) Ltd & others, 2006 (2) SA 311 (CC) at [85] [189]. Foodcorp (Pty) Ltd v Deputy Director General: Department of Environmental Affairs and Tourism: Branch Marine and Coastal Management and others , SCA decision at [2005] 1 All SA 531 (SCA) and subsequent decision of the Cape High Court at [2006] 1 All SA 277 (C) (2006 (2) SA 199 (C). Fedsure Life Assurance v Greater Transitional Metropolitan Council 1998 (12) BCLR 1458 (CC) at [53] [59]. President of the RSA v Hugo 1997 (6) BCLR 708 (CC) at [27] [31]. President of the RSA v Sarfu 1999 (10) BCLR 1059 (CC) at [148].
Recommended reading

De Ville 1- 34. A Breitenbach The justifications for judicial review (1992) 8 SAJHR 512535. D Dyzenhaus 'Law as justification' (1998) 14 SAJHR 11. C Forsyth 'Of fig leaves and fairy tales: The ultra vires doctrine, the sovereignty of parliament and judicial review' (1996) Cambridge Law Journal 122. P Craig 'Ultra vires and the foundations of judicial review' (1998) Cambridge Law Journal 63. D Dyzenhaus 'Reuniting the brain: The democratic basis of judicial review' Public Law Review (1998) 98.

9. NON-JUDICIAL FORMS OF REGULATION OVER THE EXERCISE OF ADMINISTRATIVE AUTHORITY AND DISCRETION
The objective here is to: identify and discuss the various forms of controlling or improving the exercise of administrative authority (other than ordinary courts) including; administrative appeals and tribunals,

controls by the legislature, public participation procedures, Ombudsman institutions, and access to information; and

determine the extent to which the PAJA incorporates non-judicial procedures and mechanisms for controlling administrative power and identify areas for further reform in South Africa. Prescribed reading Hoexter 63-98. Relevant cases Tetra Mobile Radio (Pty) Ltd v MEC, Department of Works, and Others 2008 (1) SA 438 (SCA). Mittalsteel South Africa Ltd (formerly Iscor Ltd) v Hlatshwayo 2007 (1) SA 66 (SCA). Recommended reading Currie and Klaaren The Promotion of Access to Information Act Commentary (2002) (on short loan). S Jagwanth 'The right to information as a leverage right' in R Calland and A Tilley (eds) The right to know, the right to live: Access to information and socio-economic justice (ODAC: 2002) 3.

10.DEFINITION OF REVIEWABLE ADMINISTRATIVE ACTION (1)

The objectives of this topic are to define administrative action; demonstrate how the Constitution and PAJA have affected the meaning of administrative action. Prescribed reading Section 1 of PAJA Hoexter, Chapter 4 C Hoexter Administrative action in the courts (2006) Acta Juridica 303. Fedsure Life Assurance v Greater Transitional Metropolitan Council 1999 (1) SA 374 (CC) 1998 (12) BCLR 1458 (CC).

Relevant cases President of the RSA v Sarfu 2000(1) SA 1 (CC) at para [34]1999 (10) BCLR 1059 (CC) [140] [143]. Pharmaceutical Manufacturers Association of SA v President of the RSA 2000(2) SA 674 (CC); 2000 (3) BCLR 241 (CC), at [79]. Sidumo & Another v Rustenburg Platinum Mines Ltd and Others 2008 (2) SA 24 (CC) [80] [88], [122] [140], [143] [240] Transnet Limited v Chirwa [2008] 2 BCLR 97 (CC) [132] [150]. Johannesburg Stock Exchange and another v Witwatersrand Nigel Ltd and another 1988 (3) SA 132 (A). Administrator, Transvaal v Zenzile 1991 (1) SA 21 (AD). Dawnlaan Beleggings (Edms) v Johannesaburg Stock Exchange 1983 (3) SA 344 (W). R v Panel on Take-Overs and Mergers, ex parte Datafin plc [1987] QB 815 (CA). Buffalo City Municipality v Willie Gaus and another 2005 (4) SA 498 (SCA). Administrator, Natal v Sibiya 1992 (4) SA 532 (A). Baloro v University of Bophuthatswana 1995 (4) SA 197 (B). Directory Cost Cutters v Minister of Posts, Telecommunications and Broadcasting 1996 (3) SA 800 (T). Embling v Headmaster, St Andrew's College 1991 (4) SA 458 (E). Govt of the Self-Governing Territory of Kwa-Zulu v Mahlangu1994 (1) SA 626 (T). Korf v Health Professions Council of South Africa 2000 (1) SA 1171 (T). Mustapha v Receiver of Revenue 1958 (3) SA 343 at 347. Naran v Head of Department of Local Government, Housing and Agriculture 1993 (1) SA 405 (T). Recommended Reading Currie and Klaaren 34 86. De Ville 35 58.

11. DEFINITION OF REVIEWABLE ADMINISTRATIVE ACTION (II)

The objectives of this topic are to identify conduct which qualifies as administrative action;

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identify circumstances under which acts or omissions of private actors may qualify as administrative action and examine in particular administrative law. Prescribed reading Section 1 of PAJA. C Hoexter Clearing the Intersection? Administrative Law and Labour Law in the Constitutional Court (2008) 1 CCR 209-234. Halton Cheadle Deconstructing Chirwa v Transnet (2009) 30 ILJ 741-756. Sidumo v Rustenburg Platinum Mines Ltd 2008 (2) SA 24 (CC). Chirwa v Transnet Ltd 2008 (4) SA 367 (CC). Gcaba v Minister for Safety and Security 2010 (1) SA 238 (CC). Relevant cases Minister of Health and another v New Clicks SA (Pty) Ltd & others 2005 JOL 15636 (CC); 2006 (2) SA 311 (CC); 2006 (1) BCLR 1 (CC) [114] [135], [446] [467], [583] [607]. Greys Marine Hout Bay (Pty) Ltd and others v Minister of Public Works and others 2005 (6) SA 313 (SCA) [19] [28]. Transnet Ltd v Goodman Brothers 2001 (1) SA 853 (SCA) at [23] [44]. Cape Metropolitan Council v Metro Inspection Services (Western Cape) CC and Others 2001 (3) SA 1013 (SCA). Pennington v Friedgood 2002 (3) BCLR 298 (C). Cronje v United Cricket Board of South Africa 2001 (4) SA 1361 (T). Tirfu Raiders Rugby Club v SA Rugby Union and others [2006] 2 All SA 549 (C). Johannesburg Stock Exchange and another v Witwatersrand Nigel Ltd and another 1988 (3) SA 132 (A). Lunt v UCT 1989 (2) SA 438 (C). Theron v Ring van Wellington van die Sendingkerk in SA 1976 (2) 1 (A). Makimba v MEC for Education, Eastern Cape (2008) 29 ILJ 2129 (SCA). Recommended reading Currie and Klaaren 34 86. De Ville 35 58. the interface between labour law and

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12. GROUNDS OF REVIEW

We will consider, in broad outline, the three groups of review grounds, lawfulness, procedural fairness, and reasonableness. This will form the platform for the detailed consideration of a limited number of cases in the second semester. In addition, the following topics will be covered in the second semester: reason-giving, procedure for judicial review, remedies, comparative administrative justice and global administrative law.

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