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Tiptoeing through the Tripwires: Recent Developments in Jurisdictional Error

Published online by Cambridge University Press:  01 January 2025

Aaron Moss
Aaron Moss*
Affiliation:
Federal Court of Australia; University of Tasmania
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Abstract

Australian administrative law's continuing emphasis on the concept of jurisdictional error is increasingly unique amongst common law jurisdictions. This paper argues that recent developments in Australian jurisprudence have provided little guidance for administrative decision-makers, who are left ‘tiptoeing through the tripwires’ of judicial review. Combining a detailed analysis of primary decisions, academic publications and historical scholarship, this paper suggests that this lack of guidance is the result of a widespread judicial reluctance to engage with either the guidance or educative roles of judicial review. As this paper demonstrates, failure to do so encourages uncertainty, unpredictability and a general lack of clarity which inhibits judicial review's ability to guide decision-makers and contribute to the maintenance of effective governance, administrative justice, and the rule of law in Australia. Particular attention is given to the decisions of Minister for Immigration and Citizenship v Li, Plaintiff M61/2010E v Commonwealth, and NBMZ v Minister for Immigration and Border Protection, which together encapsulate many of the most problematic aspects of recent jurisprudence. To avoid these consequences, this paper calls on senior judges and commentators to articulate a clearer framework which will be applied to guide the future development of the doctrine of jurisdictional error.

Type
Article
Information
Federal Law Review , Volume 44 , Issue 3 , September 2016 , pp. 467 - 503
Copyright
Copyright © 2016 The Australian National University

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Footnotes

This is a revised version (as at 4 June 2013) of a paper written in satisfaction of the author's Honours requirement at the University of Tasmania and reflects only the author's views. The author thanks Associate Professor Rick Snell for his mentoring, Dr Joyce Chia and the anonymous reviewer for their advice, and Michael Olds, James Walker and many others for their personal support.

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106 (LBC Information Services, 1996).

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144 Stretton Appeal (2016) 237 FCR 1, 3–4 [5].

145 [2014] WASC 346 (26 September 2014) [151]–[175] (‘Pilbara Infrastructure’). Mason, Foundations, above n 34, 9–14 explains this tension.

146 [2015] FCA 1473 (24 December 2015) [24].

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152 Li (2013) 249 CLR 332, 376.

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154 Ibid. See also Li (2013) 249 CLR 332, 364.

155 Eden v Minister for Immigration and Border Protection [2015] FCA 780 (24 July 2015) [29] (‘Eden’). But, cf Minister for Immigration and Border Protection v Eden (2016) 240 FCR 158, 167 [43], 175 [80], 176 [85]–[87] (‘Eden Appeal’).

156 SZRHL v Minister for Immigration and Border Protection [2013] FCA 1093, [25]–[26]; SZSFS v Minister for Immigration and Border Protection (2015) 232 FCR 262. These decisions were identified in Martin Smith, ‘The Evolution of Unreasonableness in Australian Administrative Law’, notes distributed at New South Wales Young Lawyers’ Meeting of 23 March 2016, 5.

157 Singh (2014) 231 FCR 437, 448–50.

158 Pilbara Infrastructure [2014] WASC 346 [177].

159 Eden [2015] FCA 780 [28].

160 Li (2013) 249 CLR 332, 365.

161 See Kaur v Minister for Immigration and Border Protection (2014) 236 FCR 393, 415.

162 (2010) 240 CLR 611.

163 See Public Service Board (NSW) v Osmond (1986) 159 CLR 656, 662.

164 Li (2013) 249 CLR 332, 367.

165 Wingfoot Australia Partners Pty Ltd v Kocak (2013) 252 CLR 480, 501 (‘Wingfoot’).

166 FTZK v Minister for Immigration and Border Protection (2014) 310 ALR 1, 7.

167 Wingfoot (2013) 252 CLR 480, 501.

168 Ibid 498, 501.

169 Ibid 502.

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173 Ibid 366.

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175 See, eg, Re Minister for Immigration and Multicultural Affairs; Ex parte Lam (2003) 214 CLR 1, 23–5 (‘Lam’). See generally Boughey, Janina, ‘The Reasonableness of Proportionality in the Australian Administrative Law Context’ (2015) 43(1) Federal Law Review 59, 61–3CrossRefGoogle Scholar (‘Proportionality’); Saunders, Cheryl, ‘Constitution as Catalyst: Different Paths within Australasian Administrative Law’ (2012) 10(2) New Zealand Journal of Public & International Law 143.Google Scholar

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178 Singh (2014) 231 FCR 437, 451; Eden [2015] FCA 780 [34]; Stretton v Minister for Immigration and Border Protection [No 2] (2015) 231 FCR 36, 57–8 (‘Stretton [No 2]’); WASB v Minister for Immigration and Citizenship (2013) 217 FCR 292, 304; SZVHP v Minister for Immigration and Border Protection [2016] FCA 270 (15 February 2016) [39]; Agar v McCabe [2014] VSC 309 (27 June 2014) [81]; Reale v Wesfarmers Kleenheat Gas Pty Ltd [2016] WADC 5 (21 January 2016) [73]; Schoeman v Director-General, Department of Attorney-General and Justice [2013] NSWIRComm 1018 (26 September 2013) [101]–[102].

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181 Stretton Appeal (2016) 237 FCR 1; Eden Appeal (2016) 240 FCR 158.

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186 Borrowing the expressions of Gageler and Gordon JJ in Minister for Immigration and Border Protection v WZARH (2015) 256 CLR 326, 341 and Gageler and Keane JJ in Wei (2015) 327 ALR 28, 33.

187 M61 (2010) 243 CLR 319, 334–5, 350–1.

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191 M61 (2010) 243 CLR 319, 349, 353.

192 [2010] NSWSC 1389 [168]–[169].

193 Minister for Immigration and Border Protection v SZSNW (2014) 229 FCR 197, 200–1, 220.

194 Plaintiff S10/2011 v Minister for Immigration and Citizenship (2012) 246 CLR 636 (‘S10’).

195 Ibid 653.

196 Ibid 665–7.

197 Ibid 673.

198 (2016) 327 ALR 369, 376–8 (French CJ, Kiefel and Nettle JJ), 419–20 (Keane J); cf 386–9 (Bell J), 406–7 (Gageler J), 441–3 (Gordon J) (‘M68’).

199 Kirk (2010) 239 CLR 531, 581.

200 (2009) 239 CLR 446, 455–6.

201 McDonald, above n 58, 132 (citations omitted).

202 M61 (2010) 243 CLR 319, 330.

203 Ibid 345.

204 (1916) 22 CLR 437, 452–3.

205 Re Waterhouse v Australian Broadcasting Commission (Unreported, Federal Court of Australia, Wilcox J, 21 October 1987) [10]; Broken Hill Pty Co Ltd v National Companies and Securities Commission (1986) 67 ALR 545, 551–2; Vietnam Veterans’ Affairs Association of Australia NSW Branch Inc v Cohen (1996) 70 FCR 419, 432. See Groves, Matthew, ‘Comment—Outsourcing and s 75(v) of the Constitution’ (2011) 22 Public Law Review 3, 4 (‘Outsourcing’).Google Scholar

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211 (2015) 255 CLR 514 (‘CPCF’).

212 (2016) 327 ALR 369. See especially 377–8 (French CJ, Kiefel and Nettle JJ), 383 (Bell J).

213 (1985) 159 CLR 550, 613 (‘Kioa’).

214 (2015) 255 CLR 514, 622.

215 Ibid 654.

216 (2016) 327 ALR 369, 375–7 (French CJ, Kiefel and Nettle JJ), 419–20 (Keane J).

217 Ibid 413–15.

218 Boughey and Weeks, Officers in the Private Sector, above n 208, 318.

219 M68 (2016) 327 ALR 369, 397.

220 See generally Officers in the Private Sector, above n 211, 318.

221 For reasons not disclosed in the decision.

222 (2004) 219 CLR 562.

223 NBMZ (2014) 220 FCR 1, 6 (Allsop CJ and Katzmann J), 39 (Buchanan J).

224 (1986) 162 CLR 24, 40 (‘Peko-Wallsend’).

225 NBMZ (2014) 220 FCR 1, 4.

226 Ibid 39.

227 Ibid 4–5.

228 Ibid 4–5.

229 Ibid 7.

230 Ibid 8.

231 Ibid 25.

232 Ibid 4 (Allsop CJ and Katzmann J).

233 Ibid 34 (Buchanan J). Buchanan J also considered the ‘legal and practical consequence of the decision’ at 39.

234 Project Blue Sky (1998) 194 CLR 355, 381–2.

235 (2014) 226 FCR 154, 161 (‘Tanielu [No 2]’) (emphasis added).

236 Cf Buchanan J in NBMZ at 37, who spoke of indefinite detention as a ‘direct consequence’.

237 Tanielu [No 2] (2014) 226 FCR 154, 161.

238 NBNB v Minister for Immigration and Border Protection (2014) 220 FCR 44, 78.

239 Cotterill v Minister for Immigration and Border Protection (2016) 240 FCR 29, 52–3 [133] (‘Cotterill Appeal’); AUK15 v Minister for Immigration and Border Protection (2015) 235 FCR 386, 406 (‘AUK15’).

240 Stretton [No 2] (2015) 231 FCR 36, 43.

241 Cotterill Appeal (2016) 240 FCR 29, 52–3 [133].

242 Ayoub v Minister for Immigration and Border Protection (2015) 231 FCR 513, 519 (‘Ayoub’).

243 (2014) 226 FCR 505 (‘Jaffarie’).

244 Ibid 538.

245 [2015] FCA 1018 (16 September 2015) [28]–[42] (‘Le’).

246 NBMZ (2014) 220 FCR 1, 6 (Allsop CJ and Katzmann J), 29 (Buchanan J).

247 [2015] FCA 1018 [40].

248 Cf Cotterill Appeal (2016) 240 FCR 29, 38 [43] (North J), 50–1 [120]–[122] (Kenny and Perry JJ) where any such inference appears to be excluded.

249 M64 (2015) 327 ALR 8, 14–15.

250 (2014) 220 FCR 1, 6 (Allsop CJ and Katzmann J), 29 (Buchanan J).

251 Jaffarie (2014) 226 FCR 505, 539.

252 (2015) 235 FCR 386, 407.

253 Minister for Immigration and Ethnic Affairs v Wu Shan Liang (1996) 185 CLR 259, 272.

254 SZBEL v Minister for Immigration and Multicultural and Indigenous Affairs (2006) 228 CLR 152, 166.

255 Knight, above n 88, 70, 177.

256 McMillan, above n 53, 370.

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259 Kelly, above n 260, 64–5.

260 Administrative Review Council, Federal Judicial Review, above n 79, 196–7.

261 Justice Michael Barker and Alice Nagel, ‘Legal Unreasonableness: Life After Li’ (Speech delivered at the 2014 Australian Institute of Administrative Law Conference, 25 July 2014) [24] <http://www.fedcourt.gov.au/publications/judges-speeches/justice-barker/barker-j-20140725>.

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263 Chief Justice Marilyn Warren, ‘The Dog that Regained its Bark: A New Era of Administrative Justice in the Australian States’ (Speech delivered at Australian Institute of Administrative Law Conference, Sydney, 23 July 2010) <http://www.austlii.edu.au/au/journals/VicJSchol/2010/16.html>.

264 Ibid.

265 [2016] FCAFC 30 (10 March 2016).

266 (2015) 326 ALR 198 (‘Bare’).

267 Boughey, Janina, ‘The Charter's Effect on Administrative Decision-Making’ (2016) 27(1) Public Law Review 3, 9.Google Scholar

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269 Bare (2015) 326 ALR 198, 306–7.

270 Ibid 289. See also at 353–4 (Santamaria JA).

271 McDonald, above n 58, 125.

272 Young and Murray, above n 19, 137.

273 McDonald, above n 58, 129.

274 McMillan, above n 53, 353; Sackville, Ronald, ‘Judicial Review of Administrative Decisions: An Institution in Peril?’ (2000) 23(3) University of New South Wales Law Review 190, 203.Google Scholar

275 Kelly, above n 25760, 64–5.

276 Ibid; Sackville, above n 277, 206.

277 McMillan, above n 53, 357.

278 (2014) 225 FCR 424, 443–4, 450, 456–7 (‘Tanielu’). See also Gbojueh v Minister for Immigration and Citizenship (2012) 202 FCR 417, 427.

279 Buchwald v Minister for Immigration and Border Protection [2016] FCA 101, [40] (‘Buchwald’).

280 Tanielu (2014) 225 FCR 424, 446, 451–3.

281 Ibid 451.

282 Ibid 450.

283 Te Puke v Minister for Immigration and Border Protection (2015) 230 FCR 499, 509 (‘Te Puke’).

284 (2015) 231 FCR 513, 522–8.

285 (2004) 139 FCR 505, 523.

286 (2015) 230 FCR 367, 370.

287 Ibid 376–83.

288 Ibid 383. See also Mehta v Minister for Immigration and Border Protection [2015] FCA 1096 (14 October 2015) [38] (‘Mehta’).

289 (2015) 230 FCR 367, 378, 382–3. See also Buchwald [2016] FCA 101, [70].

290 Roesner v Minister for Immigration and Border Protection [2015] FCAFC 132 (15 September 2015) [22]–[23]; Brown v Minister for Immigration and Border Protection (2015) 235 FCR 88, 97; SZSLM v Minister for Immigration and Border Protection [2015] FCAFC 164 (16 November 2015) [18].

291 Stretton [No 2] (2015) 231 FCR 36, 43; Applicant WAD230/2014 v Minister for Immigration and Border Protection [No 2] [2015] FCA 705 (14 July 2015) [42]–[43]; Maxwell v Minister for Immigration and Border Protection [2016] FCA 47 (8 February 2016) [38].

292 AZAFQ v Minister for Immigration and Border Protection [2015] FCA 681 (6 July 2015) [17]–[22]; Mrayhej v Minister for Immigration and Border Protection [No 2] [2015] FCA 691 (8 July 2015) [37], [76].

293 Tanioria v Minister for Immigration and Border Protection [2015] FCA 965 (1 September 2015) [54]–[55].

294 Te Puke (2015) 230 FCR 499, 515; Mehta [2015] FCA 1096, [38]–[40]; Berryman v Minister for Immigration and Border Protection (2015) 235 FCR 429, 437; Cotterill v Minister for Immigration and Border Protection [2015] FCA 802 (7 August 2015) [6]–[7].

295 Te Puke (2015) 230 FCR 499, 509, 513–14.

296 Kelly, above n 25760, 64–5.

297 Bateman, above n 31, 465; Forrest, Steven, ‘The Physics of Jurisdictional Error’ (2014) 25(1) Public Law Review 21, 26.Google Scholar

298 Galligan, above n 89, 169.

299 Selway, Bradley, ‘The Principle Behind Common Law Judicial Review of Administrative Action—The Search Continues’ (2002) 30(2) Federal Law Review 217, 220.CrossRefGoogle Scholar

300 Basten, above n 2, 95 (footnotes removed).

301 R v Trade Practices Tribunal; Ex parte Tasmanian Breweries Pty Ltd (1970) 123 CLR 361, 394.

302 Allsop, Values, above n 46, [58].

303 Stretton Appeal (2016) 237 FCR 1, 3 [2].

304 See eg Aronson, Tears, above n 14, 342; McDonald, above n 58, 130.

305 Galligan, above n 89, 170–1.

306 Allsop, Values, above n 46, [61].

307 Knight, above n 88, 68.

308 See, eg, Kioa (1985) 159 CLR 550.

309 Taggart, Australian Exceptionalism, above n 20, 23–4.

310 (2003) 211 CLR 476, 533.

311 Lam (2003) 214 CLR 1, 12.

312 Knight, above n 88, 177.

313 Galligan, above n 89 276.

314 Elliott and Thomas, Tribunal Justice, above n 2625, 311–12.

315 Ibid 312.

316 Aronson, Tears, above n 14, 330, 333.

317 Scott Stephenson, McCloy Symposium: Scott Stephenson on the Complications and Consequences of Constitutional Comparison (2 November 2015) Opinions on High <http://blogs.unimelb.edu.au/opinionsonhigh/2015/11/02/stephenson-mccloy>.

318 Stretton Appeal (2016) 237 FCR 1, 5 [9].

319 Selway, above n 302, 232.

320 Meyers, above n 31, 139, 144.

321 Loughlin, Martin, Public Law and Political Theory (Clarendon Press, 1992) 241.CrossRefGoogle Scholar

322 Ibid 259.

323 See, eg, Dunsmuir v New Brunswick [2008] 1 SCR 190 (Canada), and R (Cart) v Upper Tribunal [2011] 3 WLR 107 (United Kingdom).

324 Young and Murray, above n 19, 131.

325 (2012) 246 CLR 636, 666 (footnotes removed).

326 (2010) 242 CLR 1.

327 (2011) 243 CLR 181.

328 Young and Murray, above n 19, 137.

329 Bateman, above n 31, 490, 503–4.

330 Rares, Justice Steven, ‘Judicial Review of Administrative Decisions: Should There Be a 21st-Century Rethink?’ (2015) 22 Australian Journal of Administrative Law 157, 161.Google Scholar

331 Warren, above n 2636.

332 Galligan, above n 89, 276.

333 Elliott and Thomas, Tribunal Justice, above n 2625.

334 Spigelman, above n 3, 87. See, eg, Stretton Appeal (2016) 237 FCR 1, 19–25 [62]–[71] (Griffiths J) for an example of a clear, structured approach to statutory interpretation.

335 Young and Murray, above n 19, 131.

336 Groves, Judicial Review, above n 19, 383.

337 Warren, above n 263.