ADL2601MAY/

JUNE2012 MEMORANDUM

Quest
ion1(
a) (
7)

Anadmi nist
rati
ve-
lawr elat
ionshipexist
sbet weent woparti
esinanunequalrelati
onship.Oneof
t
hesubject sisaper sonorbodycl othedi nstateauthori
tywhoisabletoexercisethatauthori
ty
overaper sonorbodyi nasubor dinatepositi
onwhoser ight
sareaff
ectedbyt heaction.WATA
i
sasubj ectofanadmi nis
trati
ve-l
aw relat
ionship(anindivi
dualadmini
str
ati
ve-law r
elati
onshi
p
whererulesapplyper sonall
yandspeci fi
call
ybet weentheparti
esandtherelat
ionshipiscreat
ed
byindi
vi
dualadmi nistr
ati
vedeci si
ons.

Quest
ion1(
b) (
13)

Secti
on1ofPAJAdef i
nes" admi ni
str
ati
veacti
on”asanydecisi
ont aken,oranyf ail
ur etot akea
deci
sion,by-
(a) anor ganofst at e,when-
(i
) exercisingapoweri ntermsoftheConsti
tut
ionorapr ovinci
alconst i
tuti
on;
or
(i
i
) exer cisingapubl i
cpowerorper f
ormingapubl i
cf unctionint ermsofany
l
egislation;or
(b) anat ur
alorj uristi
cperson,ot
herthananorganofstate,whenexer cisingapubl i
c
powerorper formi ngapubli
cfunct
ioni
ntermsofanempower ingpr ovision,
whic
hadver sel
yaff
ectsther ightsofanypersonandwhi chhasadi r
ect,externallegalef fect.

Ther
ear
eexcept
ionst
othedef
ini
ti
on.

Thedeci si
ont ocl
osealltaxir out
esandt hepor t
ionoft hetaxiranksoper at
edbyWATA
amountst oadmini
str
ati
veact i
onbecausei tcompli
eswi ththedefi
nit
ionint hatiti
nvolvesa
decisi
onbyanor ganofstat
e( theMECf orRoadsandTr anspor
t,t
heappointedrepresentat
ive
i
ncont roloftheDepart
mentofRoadsandTr ansportintheGautengPr ovince)exerci
singa
powerint er
msoft heConsti
tuti
onorapr ovi
ncialwhichhasadverselyaff
ectedther i
ghtsofa
person(WATA)andwhi chappear st
ohavehadadi rectexter
nall
egaleff
ect.

Quest
ion1(
c) (
5)

I
nter
msofs239oft
heConst
it
uti
ont
hef
oll
owi
ngar
eor
gansofst
ate:

TheDepart
mentofRoadsandTr ansporti
ntheGautengProvi
nce:(
anydepar
tmentofst
ateor
admi
nist
rat
ioni
nthenat
ional
,pr
ovinci
alorl
ocalspher
eofgover
nment);

TheMECf orRoadsandTransport
,theappoint
edrepresent
ati
veincontr
oloft
heDepar t
mentof
RoadsandTr anspor
tintheGaut engPr ovi
nce(anyot herfuncti
onar
yorinst
it
uti
ont hat( i
)
exer
cisesapowerorper
for
msaf uncti
onintermsoftheConsti
tuti
onoraprovi
nci
alconsti
tut
ion)
.

Quest
ion2(
a) (
15)

Admi
nist
rat
iveact
ionwhi
chmat
eri
all
yandadver
sel
yaf
fect
sther
ightorl
egi
ti
mat
eexpect
ati
ons
ofanyper sonmustbepr ocedurall
yfair.(S3( 1)ofPAJA) .Briefl
y,legi
ti
mat eexpectati
onmeans
thatther ulesoff airprocedurear eext endedt othosecaseswher enovest edr i
ghtexists,but
onlya“ l
egitimateexpect ati
on”ofabenef itthatmaybegr antedorabenef i
tthatwillnotbe
withdrawnbef oreahear i
nghasoccur red.Thi sexpect at
ionisnotmer el
yahopeorwi sh,but
basedonsomet hingmor econcr et
e,suchasanexpr esspromi se,orar egularpract
icewhi ch
canr easonabl ybeexpect edtocont i
nue.I tdoesnotmeant hattheper soni sguar anteed
success,butonl ythatheshoul dreceiveahear ing.
Fairadmi nistr
ativepracti
cedependsont hecircumst ancesofeac hcase.(s3( 2)a)ofPAJA)
(
Mandat oryr equirements:(theseseem l ikeacodi f
icat
ionofrulesofnaturaljusti
ce)(s3( 2)
(b)of
PAJA)
•Adequat enot i
ceoft henatureandpur poseofpr oposedaction
•Reasonabl eoppor tuni
tytomaker epresentations
•Cl earstat ementofadmi ni
strat
iveact i
on
•Adequat enot i
ceofr i
ghtofreviewori nternalappeal
•Adequat enot i
ceofr i
ghttorequestr easons

Di
scret
ionaryr
equi
rements:(
s3( 3)ofPAJA)
•Opportuni
tyt
oobtai
nassist
ance,evenlegalassi
stanceincompl
excases
•Opportuni
tyt
opresentanddisputei
nfor
mationandar gument
s
•Opportuni
tyt
oappearinperson

S3( 4)ofPAJAst at
esthatther equir
ement si
ns3( 2)ofPAJAmaybedepar tedfrom onl
yif
reasonableandj usti
fi
abl
e.Thi sisdeterminedbytaki
ngallr
elevantf
act
orsint
oac count
,which
i
nclude:
•Theobj ect
soft heempower ingprovisi
on
•Thenat ureandpur poseofandneedf ortheact
ion
•Thel i
kelyeff
ectoftheadmi nist
rat
iveacti
on
•Theur gencyoft hematter
•Theneedt opromot eef
fici
entadmi ni
str
ati
onandgoodgovernance.(
s3(4)b)
( )

Ext
ramar
kort
woi
fabovei
ncl
uded.

Sect
ion3(
5)ofPAJAst
atest
hattheadmini
str
atormayal
sof
oll
owadi
ff
erentbutf
airpr
ocedur
e
i
ftheempower
ingpr
ovi
si
onauthori
sest
his.

WATAhasnothadpr ocedural
lyfai
rtr
eatmentint
ermsofPAJAbecause,int
erali
a,
WATAwasnotgi venanoppor t
unit
ytomaker epr
esent
ati
ons;andwasnotgivenreasonsf
ort
he
admini
str
ati
veact
ion.S3( 4)andS3( 5)ofPAJAdonotseem toberel
evantforpr
esent
pur
poses.

Quest
ion2(
b) (
10)

The propor ti
onali
ty pr i
nci
ple means t hat the harm t o t he indi
vidual should not be
di
sproport
ionatet ot hebenef ittot hecommuni t
y.Thepr inci
pleofpr oporti
onali
tyhast hree
el
ement s:
 Sui tabil
it
y:thisrequir
est headmi ni
str
atortaki
ngthedeci si
ontouset hemostappr opri
ate
meansavai lableforachievingthepur pose-ar at
ionalconnectionbetweent hemeans
andt heend.
 Necessi t
y:theadmi nist
ratormayt akeonlythosestepst hatar
eindispensabletoachieve
t
hepur posei fiti
nvolveshar mtot heindivi
dual
.Inot herwords,chooset heoptionthat
wil
lcauset hel eastprej
udice.
  Weighi
ngupt headvantagesanddisadvantages(
alsoknownas"
nar
rowpropor
tional
i
ty"
):
t
hisissel
f-
explanat
oryanddemandst hatthemeansmustnotbeoutofpr
oport
iontothe
endinbal
ancingtheoutcomeagainstpossibl
eharm caused.

Thedeci si
ontocloseallt
axir out
esandt hepor t
ionoft hetaxiranksoperat
edbyWATAdoes
notcompl ywiththethreeelement sofproportionali
ty.Theredoesnotseem t obear ati
onal
connectionbetweent hedecision(tocl
oseal ltaxir outesandt heporti
onoft het axiranks
oper at
edbyWATA)andt heimpr ovementofpubl ictransportinGauteng.Theclosingofallt
axi
routesandthepor t
ionofthetaxiranksoperatedbyWATAdoesnotseem t obei ndi
spensable
stepstoachievetheimprovementofpublictranspor tinGaut eng.Thedisadvant
agesout weigh
theadvantages.

Quest
ion3(
a) (
15)

S 5(1)ofPAJA providesforthefur
nishingofr easonstoanyonewhoser i
ghtshavebeen
materi
all
yandadverselyaf
fect
edandwhohasr equest
edreasonswit
hin90daysofbecoming
awareofthedeci
si
on.Section5(2)pr
ovidesthattheadmini
str
atormustgi
veadequat
ereasons
i
nwr i
ti
ngwit
hin90daysoftherequest
.

PAJA al
sopr
ovi
dest
hatacour
tmayr
evi
ew t
heact
ioni
ftheac
tioni
sit
sel
fnotr
ati
onal
l
y
connect
edtothereasonsgiven(
S6( 2)(
f(
)i
i)
(dd)
).Reasonsar
eal
soar
equi
rementi
nter
msoft
he
rul
esofnat
uralj
usti
ce(audialt
eram part
em).

Fai
lur
et ofur
nishreasonsleadst
othe(
rebut
tabl
e)pr
esumpt
iont
hatt
hedeci
si
onwast
aken
wit
houtgoodreason(s5(3)
.

I
nt ermsofsecti
on5(4)theremaybeadepar tur
efrom t
hisrequi
rementonl
yifiti
sreasonabl
e
andj ust
if
iabl
einthecir
cumstances.Allrel
evantfact
orstobeconsideredbeforemakingthi
s
decisi
on.Theaff
ectedpersonmustbeinformedimmediatel
y.

Sect
ion 5(
5)makespr ovi
sion f
oran admi
nist
ratorwho is empower
ed byan empower
ing
pr
ovi
sion(t
hisi
simpor
tant)
,tofol
l
owafair
,butdi
fferentpr
ocedur
e.

Secti
on5(6)providesthattheMini
ster
,atther equestoftheadmi nist
rat
or,maypubl
ishanoti
ce
i
nt heGazettegivingal i
stwhichspeci
fi
esanyadmi ni
str
ati
veactionorgr ouporcl
assofsuch
acti
onswher ereasonswi llaut
omati
cal
lybef urnishedtoper sonswhoser i
ght
sareadversel
y
aff
ectedbytheactionswithoutt
heneedtor equestreasons.

Thei mpor t
anceofr easonsi sthati tdemonst r
ateshowt headmi ni
str
ativebodyf uncti
onedwhen
the decision was t aken – whet heri tacted lawfully orunl awful
ly,r ati
onal l
y orar bit
raril
y,
reasonablyorunr easonabl y.Ifr easonsar elacking af f
ect ed personswoul d be ata gr eat
disadvantaget ochal l
enget heact ion.Thisrequirementi sasaf eguardagai nstanyar bit
raryor
unreasonabl eadmi nist
rat
ivedeci sionmaki ng.Cur ri
e&DeWaal( “
Justadmi ni st
rat
iveaction”in
Cur r
ie& DeWaalTheBi llofRi ghtsHandbook( 2005) )suggestt hatt hemai npur poseof
requiri
ng r easons i st oj ust
ify admi nistr
ati
ve act ion.I tpr omotes f air
ness and c orrect
admi ni
str
at i
vebehavi oursincebadr easonsornor easonsmayl eadt oreview proc eedi
ngs.I t
alsoensur esopenness,account abilit
yandt r
anspar encyi npubl icadmi nist
rat
ionandr efl
ectsthe
valuesofanopenanddemocr aticsociety.Ifnoi nformationi savai l
ablet ot heper son,issues
suchast hef ai
lur
eoft headmi nistrat
ortoappl yhismi ndt ot hemat ter,unaut hori
sedpur pose,
mal afi
deswoul dbedi f
fi
culttoprove.I twouldbedi ffi
culttofindabasi sf ortheappealorr eview.
Alsoseetheminor
it
yjudgmentofMokgor nBelPor
oandSachsJJi toSchoolGover
ningBodyv
PremieroftheWester
nCape20029BCLR( CC)
;20023SA265( CC)asquotedinthest
udy
guide(p174).

Cl
ear
lyWATAsati
sfi
esther
equir
ementofs33(
2)oftheConst
it
uti
onandneedst
ogot
hrough
t
hevari
ousst
epsi
nsect
ion5ofPAJAtoobt
aint
hese.

Quest
ion3(
b) (
3)

Admini
strat
iveact
st akeeff
ectuponthedecisionbecomingknown,ei therbypubli
cat
ionor
announcementsuchast heGovernmentGazetteorbyindivi
dualnoti
fi
cati
on(l
ett
eret
c).Once
WATAi snot i
fi
edi
nthismannert
hedecisi
onoftheMECt akeseffect
.

Quest
ion3(
c) (
7)

Anadminist
rat
orissaidtobefunct
usof
fi
ci
o(r
oughlytr
anslat
editmeans“havingcompl
etedt
he
t
ask/
duty;nolongerfunct
ioni
ng”
)whentheadmi
nistr
atorcannotamend,repeal
/r
evokeorvar
y
i
tsdeci
sion.

I
n t hi
s i nst
ance we ar e deal i
ng wi t
h an i nvali
d admi ni
str
ati
ve act i
on (procedurall
y
unfai
r/
unreasonable)
.Anyi nvali
dadmi ni
str
ati
veaction( ieinvali
ddecision)maybeal ter
edor
wit
hdrawnbyt headmini
str
ator.Theadmi ni
str
atorcanr ecti
fyadecisionwhi chwasdef ect
ivein
the fi
rstplace.Ifthe aff
ected person has questioned orchal lenged the val
idi
ty oft he
administ
rati
veactbeforeacour torhigherdomestict r
ibunal,t
heactcannotbeal t
eredbyt he
administ
rator
.

I
nthi
sinst
anceWATAhasnotchal
l
engedt
hei
nval
i
ddeci
si
onandt
heMECcant
her
efor
erect
if
y
t
hedefect
ivedeci
si
on.

Quest
ion4(
a) (
7)

 Controlbysuper i
or/seni
oradministr
ators/speci
allyconsti
tut
edbodiesorins
tit
utions.
 Parli
ament arycontrol
 Controlbypubl i
cbodi es(t
hePubl i
cPr otector
;theAudi t
or-Gener
al)andcommi ssions
Advant
ages:
 Admi ni
str
ativedecisionsaret
horoughl yre-evaluated.
 Possibl
et obr i
ngineffi
ci
entadminist
ratorstobook/ repr
imandedetc.
 Lessexpensi ve,l
es scumbersomeandl esst i
me- consumingthanjudi
ci
alcontrol.

Quest
ion4(
b) (
3)

I
nt ermsofsect
ion38oftheConst
it
uti
onanassociat
ionacti
nginthei
nterestofi
tsmember
s
haslocusst
andi
.Ther
ef eWATAhasl
or ocusst
andit
orepresenti
tsmembers.

Quest
ion4(
c) (
8)

WATA shoul dapplyforani nter

dictt ostoptheclosur
eofal lt
axiroutesandt het axir
anks
oper
atedbyWATAunt i
lthemat t
erhasbeenr evi
ewed,si
ncethematterisurgent,i
thasacl ear
l
egalinter
est,t
hereisnoot hersatisfact
oryremedyanditwil
lsuff
eri
rreparabl
epr ejudi
cei
ft he
i
nter
dictisnotgrant
ed.Anappealmayonl ybelodgedift
heparti
cul
arlegisl
ati
onpr ovi
desf
ori t
.
The High Courthas inherentr eview juri
sdi
cti
on.Inar evi
ew the courtwi l
lconsidert he
pr
ocedur
alfai
rnessoft
he wi
thdr
awal
.Itwi
l
lbe per
mit
ted t
o go out
side t
he r
ecor
d oft
he
pr
oceedi
ngs.

Quest
ion4(
d) (
7)

S8(1)(
a):t
hecour tmaydi r
ecttheadmi nistrat
ortogi vereas ons,ort oactinar equiredmanner .
S8(1)(
b):thecour tmaymakeanor derpr ohibi
ti
ngt headmi nist
ratorfrom acti
ngi napar ti
cular
manner.Thisparagrapht husmakespr ovisionforapr ohibit
oryinterdict
.
S8(1)(
c):thecour tmaygr antordersset t
ingasidedeci sionsoft headmi nist
rator.Inthemai n,
however,t
hecour twoul dsetasideadeci si
onbyt headmi nistr
atorundert heci r
cumst anceslaid
downinsection8(1)(c)andsendi tbacktot heoriginaldecisionmaker .
S8(1)(
d):t
hecour tisempower edt odeclarether i
ght softhepar t
ies.
S8(1)(
e):provi
desf orthegr ant
ingofat empor aryinterdi
ctorot hert emporaryrelief
.
s8(1)
(f
):acour tmaymakeanor derastocost s.