Plaintiff S157/2002 v. Commonwealth
[2003] HCA 2211 CLR 476
Plaintiff S157/2002
vCommonwealth
Judges:
Gleeson J
Gaudron J
Mchugh J
Gummow J
Kirby J
Hayne J
Callinan J
Legislative References:
Migration Act 1958 - 474; 486A
Acts Interpretation Act 1901 - 15A
Migration Legislation Amendment (Judicial Review) Act 2001 - Sch 1
National Security Act 1939 - The Act
Conciliation and Arbitration Act 1904 - 60(1)
Jurisdiction of the Federal Magistrates Service Legislation Amendment Act 2001 - The Act
Judiciary Act 1903 - 39B; 44
Federal Court of Australia Act 1976 - 32AB
Federal Magistrates Act 1999 - 39
Administrative Decisions (Judicial Review) Act 1977 - The Act
Immigration Restriction Act 1901 - The Act
Jurisdiction of Courts (Cross-vesting) Act 1987 - The Act
Factories and Shops Act 1928 - The Act
Judgment date: 4 February 2003
Canberra
Order
The questions reserved for consideration by the Full Court are answered as follows:
Question 1
Is s 486A of the Migration Act 1958 (Cth) invalid in respect of an application by the plaintiff to the High Court of Australia for relief under s 75(v) of the Constitution
Answer
Upon its proper construction, s 486A does not apply to the proceedings the plaintiff would initiate. No question of the validity of s 486A arises in that regard.
Question 2
Is s 474 of the Migration Act 1958 (Cth) invalid in respect of an application by the plaintiff to the High Court of Australia for relief under s 75(v) of the Constitution
Answer
Section 474 would be invalid if, on its proper construction, it attempted to oust the jurisdiction conferred on the High Court by s 75(v) of the Constitution . However, on its proper construction, it does not attempt to do so. Section 474 is valid but does not apply to the proceedings the plaintiff would initiate.
Question 3
By whom should the costs of the proceeding in this Honourable Court be borne?
Answer
The Commonwealth should pay 75 per cent of the costs of the plaintiff of the proceeding.
Solicitors for the plaintiff,
Parish Patience Immigration Lawyers
.
Solicitor for the defendant,
Australian Government Solicitor
.
Solicitor for the intervener,
Crown Solicitor for the State of South Australia
.
Cathie Dickinson
Re Refugee Review Tribunal ; Ex parte Aala (2000) 204 CLR 82 at 90-91 [14]
Official Record of the Debates of the Australasian Federal Convention , (Melbourne), 4 March 1898, vol 2 at pp 1884-1885
See, eg, Darling Casino Ltd v NSW Casino Control Authority (1997) 191 CLR 602 ; Vanmeld Pty Ltd v Fairfield City Council (1999) 46 NSWLR 78
R v Medical Appeal Tribunal ; Ex parte Gilmore [1957] 1 QB 574 at 586
R v Coldham ; Ex parte Australian Workers' Union (1983) 153 CLR 415 at 419
(1909) 10 CLR 114 at 131
(1995) 183 CLR 168 at 180
(1982) 154 CLR 25 at 55-56
(1945) 70 CLR 598 at 614-617
(1874) LR 5 PC 417
Colonial Bank (1874) LR 5 PC 417 at 442
See, eg, House v The King (1936) 55 CLR 499 at 505; Devries v Australian National Railways Commission (1993) 177 CLR 472 at 479
Hickman (1945) 70 CLR 598 at 614
Hickman (1945) 70 CLR 598 at 616
Hickman (1945) 70 CLR 598 at 616
Hickman (1945) 70 CLR 598 at 619
(1995) 183 CLR 168 at 194
(1997) 191 CLR 602 at 630
(1949) 77 CLR 387 at 399
Murray (1949) 77 CLR 387 at 399-400
Murray (1949) 77 CLR 387 at 399
Project Blue Sky Inc v Australian Broadcasting Authority (1998) 194 CLR 355 at 390
Project Blue Sky (1998) 194 CLR 355 at 390
(1951) 82 CLR 208 at 248
eg, Deputy Commissioner of Taxation v Richard Walter Pty Ltd (1995) 183 CLR 168 ; Darling Casino Ltd v NSW Casino Control Authority (1997) 191 CLR 602
Migration Legislation Amendment (Procedural Fairness) Act 2002 (Cth )
(1990) 170 CLR 321 at 365-367
Bond (1990) 170 CLR 321 at 367
Re Refugee Review Tribunal ; Ex parte Aala (2000) 204 CLR 82 at 142 [166] per Hayne J
(1885) 10 App Cas 229
Spackman (1885) 10 App Cas 229 at 239
Spackman (1885) 10 App Cas 229 at 240
Minister for Immigration and Ethnic Affairs v Teoh (1995) 183 CLR 273 at 287 per Mason CJ and Deane J; see also Chu Kheng Lim v Minister for Immigration (1992) 176 CLR 1 at 38 per Brennan, Deane and Dawson JJ
Coco v The Queen (1994) 179 CLR 427 at 437 per Mason CJ, Brennan, Gaudron and McHugh JJ
R v Home Secretary ; Ex parte Simms [2000] 2 AC 115 at 131
See also Annetts v McCann (1990) 170 CLR 596 at 598 per Mason CJ, Deane and McHugh JJ
Australian Communist Party v The Commonwealth (1951) 83 CLR 1 at 193 per Dixon J
Church of Scientology v Woodward (1982) 154 CLR 25 at 70
Public Service Association (SA) v Federated Clerks' Union (1991) 173 CLR 132 at 160 per Dawson and Gaudron JJ
(2002) 193 ALR 449 at 542 [399]
Section 91X of the Act relevantly provides:
"(1) This section applies to a proceeding before the High Court, the Federal Court or the Federal Magistrates Court if the proceeding relates to a person in the person's capacity as:
(a) a person who applied for a protection visa; (2) The court must not publish (in electronic form or otherwise), in relation to the proceeding, the person's name"
In the absence of any direct challenge, it will be assumed that s 91X is constitutionally valid
Re Refugee Review Tribunal ; Ex parte Aala (2000) 204 CLR 82 It is unnecessary in these proceedings to consider any consequences that may follow from the Migration Legislation Amendment (Procedural Fairness) Act 2002 (Cth ) which came into force, and applies to decisions made, after the decisions relevant to these proceedings
R v Commonwealth Court of Conciliation and Arbitration ; Ex parte Brisbane Tramways Co Ltd (1914) 18 CLR 54
(1945) 70 CLR 598
Australia, House of Representatives, Parliamentary Debates (Hansard), 26 September 2001 at p 31559
Australia, House of Representatives, Parliamentary Debates (Hansard), 26 September 2001 at p 31561
Re Bolton ; Ex parte Beane (1987) 162 CLR 514 at 518 per Mason CJ, Wilson and Dawson JJ; at 547 per Gaudron J See also Mills v Meeking (1990) 169 CLR 214 at 223, 226 per Mason CJ and Toohey J; Hepples v Federal Commissioner of Taxation (1992) 173 CLR 492 ; Federal Commissioner of Taxation v Ryan (2000) 201 CLR 109 at 126 [29] per Gleeson CJ, Gummow and Hayne JJ
reg 14
reg 17
Hickman (1945) 70 CLR 598 at 614-615
Hickman (1945) 70 CLR 598 at 615
Hickman (1945) 70 CLR 598 at 615
R v Coldham ; Ex parte Australian Workers' Union (1983) 153 CLR 415 at 418 per Mason ACJ and Brennan J quoting Kitto J in R v Commonwealth Conciliation and Arbitration Commission ; Ex parte Amalgamated Engineering Union (Australian Section ) (1967) 118 CLR 219 at 253 See also O'Toole v Charles David Pty Ltd (1991) 171 CLR 232 at 287 per Deane, Gaudron and McHugh JJ
Hickman (1945) 70 CLR 598 at 616
Hickman (1945) 70 CLR 598 at 616
Hickman (1945) 70 CLR 598 at 616
Hickman (1945) 70 CLR 598 at 617
See R v Coldham ; Ex parte Australian Workers' Union (1983) 153 CLR 415 ; O'Toole v Charles David Pty Ltd (1991) 171 CLR 232 ; Deputy Commissioner of Taxation v Richard Walter Pty Ltd (1995) 183 CLR 168 at 193-195 per Brennan J; Darling Casino Ltd v NSW Casino Control Authority (1997) 191 CLR 602
(1983) 153 CLR 415 at 418 per Mason ACJ and Brennan J
(1949) 77 CLR 387
Murray (1949) 77 CLR 387 at 399-400
Murray (1949) 77 CLR 387 at 400
See Darling Casino Ltd v NSW Casino Control Authority (1997) 191 CLR 602 at 633-635 per Gaudron and Gummow JJ
Murray (1949) 77 CLR 387 at 400
Murray (1949) 77 CLR 387 at 400
Murray (1949) 77 CLR 387 at 400
Coldham (1983) 153 CLR 415
Conciliation and Arbitration Act 1904 (Cth ), s 142A(1 )
Coldham (1983) 153 CLR 415 at 419
Coldham (1983) 153 CLR 415 at 419
See Deputy Commissioner of Taxation v Richard Walter Pty Ltd (1995) 183 CLR 168 at 180 per Mason CJ; at 206-207 per Deane and Gaudron JJ See also Darling Casino Ltd v NSW Casino Control Authority (1997) 191 CLR 602
See Darling Casino Ltd v NSW Casino Control Authority (1997) 191 CLR 602 at 631, 634 per Gaudron and Gummow JJ
Murray (1949) 77 CLR 387 at 400
R v Hickman ; Ex parte Fox and Clinton (1945) 70 CLR 598 at 616 per Dixon J See generally with respect to the rule that, if possible, legislative provisions should be construed conformably with the Constitution : Ex parte Walsh and Johnson ; In re Yates (1925) 37 CLR 36 at 61-62 per Knox CJ; at 127 per Rich J; at 138 per Starke J; Pidoto v Victoria (1943) 68 CLR 87 at 109 per Latham CJ; R v Director-General of Social Welfare (Vic ); Ex parte Henry (1975) 133 CLR 369 at 374 per Gibbs J; Russell v Russell (1976) 134 CLR 495 at 542 per Mason J; Bourke v State Bank of NSW (1990) 170 CLR 276 at 291; Re Nolan ; Ex parte Young (1991) 172 CLR 460 at 485-486 per Brennan and Toohey JJ; Re Dingjan ; Ex parte Wagner (1995) 183 CLR 323 at 339 per Brennan J; Victoria v The Commonwealth (Industrial Relations Act Case ) (1996) 187 CLR 416 at 501-503 per Brennan CJ, Toohey, Gaudron, McHugh and Gummow JJ; Wilson v Minister for Aboriginal and Torres Strait Islander Affairs (1996) 189 CLR 1 at 10 per Brennan CJ, Dawson, Toohey, McHugh and Gummow JJ; at 26 per Gaudron J; R v Hughes (2000) 202 CLR 535 at 556-557 [43] per Gleeson CJ, Gaudron, McHugh, Gummow, Hayne and Callinan JJ; at 560-561 [53] per Kirby J; Re Patterson ; Ex parte Taylor (2001) 207 CLR 391 at 494-495 [310] per Kirby J; Acts Interpretation Act 1901 (Cth ), s 15A
Public Service Association (SA) v Federated Clerks' Union (1991) 173 CLR 132 at 160 per Dawson and Gaudron JJ See also Darling Casino Ltd v NSW Casino Control Authority (1997) 191 CLR 602 ; Shergold v Tanner (2002) 76 ALJR 808 at 812 [27] per Gleeson CJ, McHugh, Gummow, Kirby and Hayne JJ
R v Kirby ; Ex parte Boilermakers' Society of Australia (1956) 94 CLR 254 ; Attorney-General (Cth) v The Queen (1957) 95 CLR 529
Coldham (1983) 153 CLR 415 at 419 See also at 426-428 per Deane and Dawson JJ
See Minister for Immigration and Multicultural Affairs v Bhardwaj (2002) 76 ALJR 598 at 606 [51] per Gaudron and Gummow JJ; at 608 [63] per McHugh J; at 624-625 [152] per Hayne J
See R v Metal Trades Employers' Association ; Ex parte Amalgamated Engineering Union, Australian Section (1951) 82 CLR 208 at 248 per Dixon J See also Darling Casino Ltd v NSW Casino Control Authority (1997) 191 CLR 602 at 632 per Gaudron and Gummow JJ
R v Coldham ; Ex parte Australian Workers' Union (1983) 153 CLR 415 at 419 per Mason ACJ and Brennan J See also R v Metal Trades Employers' Association ; Ex parte Amalgamated Engineering Union, Australian Section (1951) 82 CLR 208 at 248 per Dixon J; Darling Casino Ltd v NSW Casino Control Authority (1997) 191 CLR 602 at 632 per Gaudron and Gummow JJ
See Darling Casino Ltd v NSW Casino Control Authority (1997) 191 CLR 602 at 635 per Gaudron and Gummow JJ
See R v Cook ; Ex parte Twigg (1980) 147 CLR 15 at 32 per Aickin J; R v Marshall ; Ex parte Federated Clerks Union of Australia (1975) 132 CLR 595 at 609 per Mason J; O'Toole v Charles David Pty Ltd (1991) 171 CLR 232 at 270 per Brennan J; Re Refugee Review Tribunal ; Ex parte Aala (2000) 204 CLR 82 at 90-91 [14] per Gaudron and Gummow JJ; Re McBain ; Ex parte Australian Catholic Bishops Conference (2002) 76 ALJR 694 at 725 [165] per Kirby J
Re Refugee Review Tribunal ; Ex parte Aala (2000) 204 CLR 82 at 90-91 [14] per Gaudron and Gummow JJ; Re McBain ; Ex parte Australian Catholic Bishops Conference (2002) 76 ALJR 694 at 699 [19] per Gleeson CJ; at 705 [55] per Gaudron and Gummow JJ; at 727 [176] per Kirby J
Re McBain (2002) 76 ALJR 694
Re Refugee Review Tribunal ; Ex parte Aala (2000) 204 CLR 82
cf O'Toole v Charles David Pty Ltd (1991) 171 CLR 232 at 286-287 per Deane, Gaudron and McHugh JJ where the view was expressed that the question of bona fides is to be determined solely by reference to the record and not by reference to subjective considerations Dawson J (at 305) and Toohey J (at 309) expressed the view that the question of bona fides is to be determined by reference to considerations personal to the decision-maker
Section 51(xix ) confers legislative power with respect to "naturalization and aliens"
Section 51(xxvii ) confers legislative power with respect to "immigration and emigration"
Section 51(xxix ) confers legislative power with respect to "external affairs"
(1998) 194 CLR 355 at 384 [78] per McHugh, Gummow, Kirby and Hayne JJ
R v Murray ; Ex parte Proctor (1949) 77 CLR 387 at 400 per Dixon J
(1931) 46 CLR 73
(1943) 67 CLR 58 at 82
cf Australian Communist Party v The Commonwealth (1951) 83 CLR 1 at 262 per Fullagar J
Bank of NSW v The Commonwealth (the Bank Nationalisation Case ) (1948) 76 CLR 1 at 164 per Latham CJ; at 252 per Rich and Williams JJ; at 371-372 per Dixon J; Strickland v Rocla Concrete Pipes Ltd (1971) 124 CLR 468 at 494 per Barwick CJ; at 503-504 per Menzies J; at 520 per Walsh J; Western Australia v The Commonwealth (Native Title Act Case ) (1995) 183 CLR 373 at 485-486
(1951) 83 CLR 1 at 193; cf Kartinyeri v Commonwealth (1998) 195 CLR 337 at 381 [89] per Gummow and Hayne JJ
Australian Communist Party (1951) 83 CLR 1 at 193
Menzies, Afternoon Light (1967) at p 320
Public Service Association (SA) v Federated Clerks' Union (1991) 173 CLR 132 at 160 per Dawson and Gaudron JJ
s 474(2 )
Pochi v Macphee (1982) 151 CLR 101 at 106 per Gibbs CJ speaking with respect to deportation of aliens See also Ferrando v Pearce (1918) 25 CLR 241 at 253 per Barton J
UNTS 2545 done at Geneva 22 April 1954 See also the Protocol relating to the Status of Refugees done at New York on 31 January 1967
Section 36 was inserted in the Migration Act by the Migration Legislation Amendment Act 1994 (Cth )
As an example of one of the minor exceptions, a person, arrested without warrant on a reasonable supposition of being a prohibited migrant might seek a review of his apparently prohibited status by a prescribed authority appointed by the Minister pursuant to ss 38-40 of the Migration Act as enacted in 1958
Salemi v MacKellar [ No 2 ] (1977) 137 CLR 396 at 400-403 per Barwick CJ; at 419-421 per Gibbs J; at 460 per Aickin J
cf Re Refugee Review Tribunal ; Ex parte Aala (2000) 204 CLR 82
"Pourquoi donc commencer par le transporter sur une haute montagne, et lui montrer son empire sans limites, lorsqu'il doit en descendre pour trouver des bornes à chaque pas?" Malouet, Archives Parlementaires , viii, at pp 322-323
In England, for example, the rights of review and appeal, the latter by leave "on a question of law material to [the] determination" for which ss 58 and 59 and Sch 4, Pt III, s 23(1) of the Immigration and Asylum Act 1999 (UK ) make provision The United States amendments to the Immigration and Nationality Act 1952 made by the Illegal Immigration Reform and Immigrant Responsibility Act 1996 which are designed to curtail the scope of judicial review (usually sought under the due process provisions of the United States Constitution (fifth amendment))
Reasons of the Chief Justice at [5]
See, for instance, Official Record of the Debates of the Australasian Federal Convention , (Melbourne) 31 January 1898, vol 1 at p 349, and Official Record of the Debates of the Australasian Federal Convention , (Melbourne), 4 March 1898, vol 2 at p 1894
Quick and Garran, The Annotated Constitution of the Australian Commonwealth , (1976) at p 783
[1952] 1 KB 338 at 348
See also Shaw and Gwynne, "Certiorari and Error on the Face of the Record" ( 1997) 71 Australian Law Journal 356 et seq
Hawes, The Law Relating to the Subject of Jurisdiction of Courts , (1886) at ¶161
Associated Provincial Picture Houses Ltd v Wednesbury Corporation [1948] 1 KB 223
It is not insignificant that s 33 of the Judiciary Act 1903 (Cth ) makes no reference to certiorari Both it and s 32 which is concerned with the efficacious completeness of relief being enactments only may of course be repealed or amended from time to time
(1999) 198 CLR 511
(2000) 204 CLR 82 at 156-157 [218]
(1995) 184 CLR 163 at 181
(1991) 173 CLR 194
(1976) 136 CLR 248
(1978) 142 CLR 113
(1979) 143 CLR 190
s 39B of the Judiciary Act 1903 (Cth ) can effect no constitutional change and is, like any other section, subject to later express or implied repeal See also Meagher, Gummow and Lehane ( Equity, Doctrines and Remedies (3rd ed, 1992) at [21 102]) who point out that "Under the general law the Court of Chancery had no jurisdiction to issue injunctions against the Crown, since the Chancery Court was itself an emanation of the Crown" It may be that specific reference to an injunction in s 75(v ) was made in order to make it clear that the remedy lay in a constitutional context
(1996) 189 CLR 51
Quick and Garran, The Annotated Constitution of the Australian Commonwealth , (1976) at p 783
(1995) 183 CLR 168 at 194
Migration Legislation Amendment (Judicial Review) Bill 2001 at 2
Migration Legislation Amendment (Judicial Review) Bill 2001 at 7
Migration Legislation Amendment (Judicial Review) Bill 2001 at 5
(1945) 70 CLR 598
Australia, House of Representatives, Parliamentary Debates (Hansard), 3 September 1997 at p 7615
See Pochi v Macphee (1982) 151 CLR 101 at 106 per Gibbs CJ
"8(2) The Migration Act 1958 and the Administrative Decisions (Judicial Review) Act 1977 , as amended by this Schedule, apply in respect of judicial review of a decision under the Migration Act 1958 if:
- (a)
- the decision was made on or after the commencement of this Schedule; or
- (b)
- the decision:
- (i)
- was made before the commencement of this Schedule; and
- (ii)
- as at that commencement, an application for judicial review of the decision had not been lodged"
(1945) 70 CLR 598 at 614-615
(1874) LR 5 PC 417
Willan (1874) LR 5 PC 417 at 442
Willan (1874) LR 5 PC 417 at 442-443
R v Hickman ; Ex parte Fox and Clinton (1945) 70 CLR 598 at 615 citing Baxter v New South Wales Clickers' Association (1909) 10 CLR 114 at 157 per Isaacs J and Australian Coal and Shale Employees Federation v Aberfield Coal Mining Co Ltd (1942) 66 CLR 161 at 182 per Starke J See also Wall v The King ; Ex parte King Won and Wah On [ No 1 ] (1927) 39 CLR 245 at 256 per Isaacs J
Coal Miners' Industrial Union of Workers of Western Australia v Amalgamated Collieries of Western Australia Ltd (1960) 104 CLR 437 ; R v Commonwealth Conciliation and Arbitration Commission ; Ex parte Amalgamated Engineering Union (Australian Section ) (1967) 118 CLR 219 esp at 252-254 per Kitto J and see also at 264-265 per Menzies J; R v Coldham ; Ex parte Australian Workers' Union (1983) 153 CLR 415 ; O'Toole v Charles David Pty Ltd (1991) 171 CLR 232 In a taxation setting see Deputy Commissioner of Taxation v Richard Walter Pty Ltd (1995) 183 CLR 168 at 179-180 per Mason CJ; at 193-195, 198-199 per Brennan J; at 210 per Deane and Gaudron JJ; at 222 per Dawson J; at 233 per Toohey J; at 240 per McHugh J
(1949) 77 CLR 387 at 398 See also Project Blue Sky v Australian Broadcasting Authority (1998) 194 CLR 355 at 389-390 [92] per McHugh, Gummow, Kirby and Hayne JJ
R v Murray ; Ex parte Proctor (1949) 77 CLR 387 at 399
Scurr v Brisbane City Council (1973) 133 CLR 242 at 255-256 per Stephen J See also Project Blue Sky v Australian Broadcasting Authority (1998) 194 CLR 355 at 389-390 [92] per McHugh, Gummow, Kirby and Hayne JJ
R v Murray ; Ex parte Proctor (1949) 77 CLR 387 at 399
R v Murray ; Ex parte Proctor (1949) 77 CLR 387 at 400
(1874) LR 5 PC 417 at 442
(1983) 153 CLR 415 at 419 Dixon J had earlier, in R v Metal Trades Employers' Association ; Ex parte Amalgamated Engineering Union, Australian Section (1951) 82 CLR 208 at 248 referred to "inviolable limitations or restraints [by enactments]"
(1999) 198 CLR 511 at 565 [79]
cf the suggestion to this effect by Gummow J in Minister for Immigration and Multicultural Affairs v Eshetu (1999) 197 CLR 611 at 657 [146]
(1991) 173 CLR 194
See, eg, Judiciary Act 1903 (Cth ), s 35(2 )
(1938) 59 CLR 369 at 385
Parisienne Basket Shoes (1938) 59 CLR 369 at 388-389
(1920) 28 CLR 419 at 424 per Knox CJ, Gavan Duffy and Starke JJ
(1991) 173 CLR 194