Administrative Law by IP Massey (8th Edition)

Administrative
Law
DR LP. MASSEY
LLM (Lko), LLM (Calif., lkrkeley), PhD
),' o r nwrly Professor and Chairlllan, DepartlJlent of Law
and Dean , Fa <: l1lty of) ,aw
Himachal l'raoesh University, Shilnl~
Member, State Legal Services Authority, (H.P.)
M ember, State Human Rights Commission, (H.P.)
Fellow, Indian Institute uf Advanced Study, Shimla
Visiting Professor of Law
Hidaya tullah National Law University Raipur (C hattisga rh)
Presently Professor of Law and Dean, Faculty of
Law, National Law University, Jodhpur
Foreword by
HON'BLE MR JUSTICE P.N. BHAGWATI
(Rctd.) Chief Ju stice of India
With an Introductioll by
PROF. UPENDRA BAXI
I~
EASTERN BOOK COMPANY

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[Je'tailed Contents
fable of else:; • LXXlll
l. INTRODUCTION TO ADMINISTRATIVE LAW 1

ndinition 'Inri scop~ of ;ldll1illistr;]l' ivr~ law . . . . . 1
I Reasons for the growth of administrative law with special
. reference to India . . . . . . . . . . . . . . . . .. . 9
.. Growth of administrative law in India . . . . . . . . 11
Difference between constitutional law and administrative law '15
Droit administratif .. 16
I.f ,(fjk.
.
"I.
"
Points for discllssion
''' Suggested readings .
19
20
2. CONCEPTUAL OBJECTIONS AGAINST THE GROWTH OF

ADMINISTRATIVE LAW . . . 23
. Concept of the rule of law 23
Doctrine of separation of powers 36
Points for discussion 43
Suggested readings . . . . . . 44
3. ANATOMY OF ADMINISTRATIVE ACTION 47

Classification of administrative action 47
Rule-making action or quasi-legislative action 47
Rllie-decision action or quasi-judicial action 49
Attributes of administrative decision-making action or
quasi-judicial action and the distinction between judicial,
quasi-judicial and administrative action . . 50
Rule-application action or administrative action 55
Ministerial or pure administrative action 5S
Administrative instructions . . . . . . . . . . . . . 58
Administrative discretion . . . . . . . . . . . . . . 62
Judicial behaviour and administrative discretion in India 63
Control at the stage of delegation of discretion 63
Control at the stage of exercise of discretion 63
-
https://t.me/LawCollegeNotes_Stuffs
l.XIV ADMINISTH.AI'IVI; L,\W OlnAIL£~1) CONTrrNTS I.XV
A J'-.If\ r' )1'/1 Y OJ' 1\ J !lVI iN !';T Ri\' l'l V : ~ ,\CYll i i'-! (i~" l/t, t.) [I,ll _E iv" 1\/' tNt . 'I \X/,L','. II• I.) \ ' "' f),TT
' ' r' ~I- ,' r '~',1.1)1'/1 _" S' I'I(ATIOi\i (C;" n id.)
1.
.,, ., [' ,.,:;1'11; 1;,:,,[ fll,ci,li'_ii),
1:2.1
i',TOI;i\)1t: i'I:,;f: UI Cc :;: ;'ldlll;LI; ',;I;1tiV(; di ,;crc;i'd' ::11 '\ Ar l;I; Jr. 14-
~~ (lI'lhk 111:;\;\1'\(:\: :;: adlllilli:;lra t iv(; dis c ,-c ,ioll :I Ill! /\, I;IJ ,· I')
(,6 J I,di ci;t1 COllll'oj . .. . " . . . . " . . UO
N I);;,j)1<: ill:, t;lll'; C:'; . , , (i s Thai i1w 1;11;<lllilll', /\ I.; i i:; 111; ),:1 vi,,; ;; tlJi:' (::()'rt:;'til~ll;i(')JJ' ill
rC n' /wl! (-:/}eiilir:,J/:; Uri . v. C ii i ll/IJl iI')I L i l 'i i!(I,' ( li (,s T he adlllilli.';tl':tlivc lc:gd a1. io)) i,<; Uli:;-;l vi,, :,-: ilt c~
M . ;\ , 11 rlsheed v. SI(II,~ of' {,' (!)'(t1, 1 . " , . , . 0
(;g Cowolilillioll . . . . . . . . . . . . . . . . . . . . . , I :U
S , I~ , V C/! !:illal'(/ illi! 1!v, (i llion of I lIdi, 1 (,') That the admini strative IcgislatiolJ is 1I1tra virc.'; I he; (:11;1 hlil1;!,
Act , . . . . . , .. US
l\milll1l1l D lIyai'rllJI S!)(:iiy v. Jll i CfJlllli l Jlltil ;\i; I)())' !
7() Poi Ilts for d iscllssioll 150
/\lIr/}()riry of IJldi,!
Poillb fo r disc ussioll 1 (, Sllggc:;lnl JI:adillgs lSI
~;llggC;;ITd rendill!',s . / (,
s. [)j,:C lSION-MAKINC OR ADJUDICATORY POWER OF THE
79 ADMINISTRATION 153
lW LF. .. MAl<JN(; POWER 01 : DIE ADMIN [:;n~ATION
J\.!cl·d for adlllillistJ'ative rule"lllakill~\ . . . . , . . . . . . . SO Need for adl11inistrativ~ ~d;u~i~a~j;l1l'
: : : : : : : : : : : 153
COlin of law and the administrative agency exercising
Classific,ltion of ndministrativc rule ,making power or delegated
legislation . , . . . . . . . . 0 • • • • • • , • • • • •
~p
( .. adj udicatory powers . . . . . . , . . 1 So'i
( )-,
0.1
Pr()hlems of admini strative deci"ion -malcing IS7
Titl e,·based classi hcation , . . . . . . , , , . . . , . ,
113 Number and complexity . . . . . . . . 158
Discretion-based classi fication (cone! itionallegislation)
116 Bewildering variety of procedures 158
Purpose-based classification . , . . . . , . . . . ,
S9 Unsystematic system of appeal 158
Authority-based classification (sub-delegation)
90 Invisibility of the decisions . 159
Nature-based classification (exceptional delegation)
Unpredictability of decisions 159
Constitutionality of administrative rule-making or delegated
91 Anonymity of decisions 159
legislation . . . . . . . . . . . . . . . . . . . . . . . . .
94 ), Combination of functions 160
Constitlltionality of administrative rule-making in India
94 No evidence rule . 161
When the Privy Council was the highest court of appeal
95 Official perspective 163
When Federal Court became the highest court of appeal
95 Official bias 164
When Supreme Court became the highest court of appeal
97 Plea bargaining 164
Excessive delegation is unconstitutional . . . . . . . . . . .
Political interference 165
What is an essential legislative function and where is the policy
of the law to be found .,.,. . ., .... . . , . , . . 98 Off-the-record consultation 165
Norms of jurisprudence of delegated legislation emerging from
Reasoned decisions ...... 166
the decisions analysed . . . . . . . . . . . 108 Legal representation and cross-examination 166
Constitutionality of delegation of taxing power . . . . . 109 Administrative versus judicial action 167
Retrospective operation of delegated legislation . . . . . 112 Tribunalisation of justice .. 168
Control mechanism of administrative rule-making in India 114 Statutory tribunals . . . . . . . . . . 168
Parliamentary control 114 Domestic tribunals 175
Direct general control 115 Ca~ e~~uiry be insti~u'ted ~~ain~t 'p~r~o~ ~~e;ci~i~~ ~u~si-
115 JudiCial powers 178
Di rect special control
Legal consequences of non-compliance with the laying Points for discussion 179
118 Suggested readings . 180
provisions
Indirect control 120
123 6. PRACTICE AND PROCEDURE OF ADMINISTRATIVE
Procedural control
123 ADJUDICATION: RULES OF NATURAL JUSTICE ' . . . 183
Drafting
124 Principles of natural justice 183
Antenatal publicity
125 Rule against bias . . . . 189
Consultation with affected persons
I.,'VI AlltvIlNIl\·IIl,\I' I Vl·. LAW
I"l l''' J'ln::. L\j'·J l' I'F 'j ' 1' \' 1)1 I; 1)17 1\;~l;1 :IST17J;lt'/F 6. l'iu\.CT!C;~ /\ N Pl\OCEDURF Of l\l..Hvl1N[ST I(/\TI VE
h.
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190 1)()sf - dl ~ (; i:;i()1l;11 ht,:'ll-ilJg . . . . . .. . 2..1] 7
IVIIJ/ill!, 1,1I1 1/ . [II ;'11:/ 11 (. :lii/li d
194 EXlT ll i.i(Jll:i i~(J i.lll; I'Idl.: 01 Il;lfllr,ti Illsi in: 2S 0
Sil.! !!' IJ r U.I', V lill()/lil. /\I()II!)
194 l:'",r.: hl,';i()11 in 1'1(lI'J'I',('I II;Y 2,.'i l
;\ . 1<, l<rllil)I!!' IIIliOil ()(/ildi l i (L<"lli!!lt/,) 19. J-:XdIISioll ill 1; ;1sr:, or c: ollfid(~\lli~liil'y . '"
V, 253
/ . MO!JII/)(//i'I! ({I ll! CU . V , Slil/I! ()J 01';:;'1 1
Excil'sioll ill case of pUJ"(;ly adIILinistraliv(: I'Lafiers 2.')3
19(i
. (j. Mo/)(!I)tliftl) ... , . , , Exclusion ba~cd Oil illlpracticability . . .. . 254
(.'ull;;a Bai (:hllrilic:; v. Cl't' 19'i Exciu!;ioll in (;ascs of illtcr illl preventive actioll 2SS
'j:I"1 Cdlft/ar v. llltiOl ! I, Idi" or IIHi
1:'>7
Excillsio ll ill cascs of legislative action . .. . . 256
C.N . Nay,r/.: v. COil Uniflersily Wherc 110 right of tht: person is infringed , . 260
P<irllllil v. I-Tir<ila[ Motil(/[ Des,mi, l 197 Exclusion in case of statu lOry cxception or nccessity 261
Mo!){I. YIIIlIlS KIJoli V, S/ (! /I! 1) , 1'. or (YlIlllfs (OJiIll) 1'-)7
I'-)i;
Exclusion in case of contractu,\1 arrallgellLcllt . :~62
Pcr; ulliary hi:1s .. . .. . , . .. . I~~ xclnsi()n iil case of governme nt policy dccision 262
Subjcct-mattcr bias . .. .. . . . . 199 "Useless formality" theory . . . . . . . . , . . . . . . 263
Dcpartmcntal hias/insli t llri()ll ~d l)i ll.' :WO Effect of brcach of the rules of llatllral justice: actioll void or
2(P voi dable . . . . . .
Policy ILoliul1 lJias .. . .. . 26S
Precollceived notioll bias . . 203 Points for discussion 268
Bias on accollnt of obstin;1(;y 204 Suggested readings . 270
Doctrine of necessity 2.04
Andi alteram partem or the rulc of fair hearing 206
Duty to act judicially or the duty to act fairly 210 7. JUDICIAL REVIEW OF ADMINISTRATIVE
2lJ ACTIONS: PRINCIPLES . . . . . 273
Right to notice . . . . , . . . . . . . .
- ,
"t,
"
Consequences of non-issue of notice 215 ~ ¢:~!.,. ~ Jurisdiction of the Supreme Court 273
Right to know the evidence against him 215 •• T , " Under Articles 32 and 136 . , . 273
Right to present case and evidence/oral hearing 216 Jurisdiction of the High Courts under Articles 226
The right to rebut adverse evidence 218 and 227 . . . . . . . . . . . . . . . . , 282
Cross-examination . . . . . . 218 Judicial revicw of administrative policy 288
Legal representation . . . . . . 220 Compliance with tht: court orders 288
No evidellc~ should he taken at the back of other party 223 Public law review . , . . . . . . . . . . . . . . ... . .. . 289
Report of the enquiry to be shown to the other party 225 Constituency of public law review: against whom a writ can be
Reasoned decisions or speak ing orders . . . . . . 233 issued . . . , . , . . . . . . . . . . . . . . . . . . , . . . 289
Reasons may be mandated by the Constitution . . 231 Authorities amenable to the writ jurisdiction of the Supreme
Reasons may be mandated by law . . . . . . . . . 235 Court . , . . . . . . . . , . . . . . . . . . . . . . . . . 289
Reasons may be mandated by the principles of natural Authorities amenable to the writ jurisdiction of
justice . . . . . , . . . , . . . . . . . . . . . . 235 High Courts , . . . . . , . . . . . . . . . . 290
Reasons may be mandated by the nature of functions Locus standi to challenge administrative action , . 301
which an administrative authority exercises 236 Standing in the PIL . . . . . . , . . . . . . . . . 305
Institutional decision or onc who decides mllst hear 212 Expression "standing" to include notional injury 306
Rule against dictation ." ...... . 244 "Public duties" standing 306
Financial incapacity to attend the enquiry 244 "Class" standing . . . . . 307
Decision post-haste . , . , . . . . . . 245 "Public concern" standing 308
Should the third party to dispute be heard 246 Laches or unreasonable delay 3[6
Off-the-record consultation 246 Alternative remedy 3[9
Fact-findi ng enquiry/pre-hearing
24(, Res judicata 321
IIP-TAILI n ( ONTEN I. I.X IX
. N'IS'-11 "'''''1\1 ' H. JUD !CI.!\ 1 R~Vrr;,\j,' 117 f\ I)Ml l li.,rUf\ i'iVi':
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()l\)llbli c \:1w l('view . . , . , . . , .....

J26 A hIIS(' of jlll·i!;.!iu ioJ1 .J~O
I whil(: t'x(,lcisilq!, POWCI' ViO/aii(1I1 of ill!: principle:; or ll:li lI fa l jllsti(:e J9 ()

\ ' ()lill docs 1I0t sil as an :1PPC II ;lle' ( Ollr
3D i.."iota IJlc ills t:l Il CC:; . . . . . . . . . . . . :)') I
of t'(;vic:w ..... .
:ll.Y F,1'roj' of law apparent on the face of the record 391
i\dlJlillistrative policy decision:;
Curative petitiolls . ... . .
:no Frallc.! J97..
:-13 1 Writ of prollibitiOIl . . . . . . . , . . . 393
CO lltinllOI\S \ll;1nd"lll\Js
,UL CJ"OlIlIds (or the iSSII(: of prohibit'ion 393
Finality ot :.!cimini trative :lctioll
:rn, Writ of mandamus . . , . . . . . . . . .19.'1
Mode.s of conferring finality . " .
:l:13 COllditiom for the gr:1nt of lll:lncbmu s 395
finality clause and the POWCl" o~ i.lldJ(:lal rcvlew
Grounds for the grant of mandamus . 398
Constitutional modes of jlldI C I~III"cVICW and
administrative finality . . , : . ...
.1:n Writ of quo warranto . . . . . . . . . . 399
Non-constitutional modes of judicial review and Conditions for the grant of quo warranto 400
administrative finality . . ...
334 Locus standi for the writ of quo warranto 40l
Comparative study: the position regarding ouster or Writ of habeas corpus . . . . . . . . . . . . 402
339 Constitution and the writ of habeas corpus 405
fi nality . . . . . . , . . . , . . . . . . .
341
,"t,"
Illegal orders cannot be repe~t~d '~ 1ty/·,,,,.,
~ ~~!.;.. ~ Private law review/non·constitutional review 406
342 Injunction . . . . . . . . . . . . . . . . 406
Administrative review or reVISion
342 Declaration . . . . . . . . . . . . . . . 41 'I
Violation of procedural norms
344 Conditions for the grant of declaratory relief 411
Doctrine of legitimate expectation
345 Suit for damages . . . . . . . . . . , . . , , , 414
Development in England . . .
348 Affirlllative actio1l for the enforcement of public duties 414
Development in India . . . .
357 Non-binding (advisory) review 41()
Doctrine of public accountability
367 Points for discussion 416
Doctrine of proportionality
368 Suggested readings . 417
Development in England
370
Development in India . . . . . . : . . . . . . .
376 9, PUBLIC INTEREST LITIGATION OR SOCIAL ACTION
A judicial review of admi nistrative actIOns: grounds
377 LITIGATION . . . . . . 421
Illegality . . . . . . . . . . .
377 Nature and purpose 422
Lack of jurisdiction .
378 Constitutional habitat 423
Excess of jurisdiction
378 Loclls standi . . . . . 423
Abuse of jurisdiction
379 Procedure . . . . . . 425
Failure to exercise jurisdiction
379 Complexities and problems of PIL 429
Irrationality (Wednesbury test)
380 Changing perspective 433
Procedural impropriety
381 Notable case laws 438
Proportionality
383 Class actions 441
Points for discussion
384 Points for discussion 442
Suggested readings
Suggested readings . 443
IJLt'AIJ.ED co. TI Nrs 1.X,'1
II. ';T,\TtJTURY I\Nn NON-'iTJ\TUT.'Jf'.Y PlT['.T Ii

J () . r .11\11 TL.IT I' 0 I,' fJ I.E 1\.LlivllW ST 1i. j\ TIO N • . . . . . . • . . r INDHi, [/\ nN(l~ (C(liliJ.)
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Jlld ici:ll C;,), II ml S2/1
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C :OIJ.(jllt1J(')'" ()I-~I,alli~;(liiull:'; ;"1 11d (;()llll( 'i l~;
Liability of the ;1dlllinistralioll in lori'
-171 Illlcrr:sl rr'prCSC111 al i011 •..••. • .
COVel'llJ1IClll::d liability in torl -·l he \,'n:llch model
tl71 C01l.'; II J1J('1' gt iC:V:Ill(.:'; n~d\'(::;:;;11 rorillil~;
Personal f:lltlls
472 Covcnllllcll1' <':OIllP;lllic~;
Service fault:
tl72 l'oinu; for ,li;;, Il s:,il)\I
Scrvicc-,collilected fa lilt
474 SI)ggeslcd n:adillgs .
COlltriGutioll . . . . .
474
Risk theory . . , . . .
12.. 'nIE errU.EN Al'1D ADMlr.IISTJU\TlVE I,'A1JfTS S3S
Compensation for govnllllielltal refllsa\ to prolecl the Ir:g;11
interests and rights of the pcople . . . . . . . . . . . . OllibudsllI<l11 ... , ... 535
Compensation for goverumelltal anioll il Iposillg sLalulOry Devc\oplllclIl ill Eligialld 5.17
llneqllal sacrificc . . . . . . . , . . . . . . . . . . . . . 4'17 Devc\opmellts in the US S40
Some obGervations for the future (leve inpllWllt of the law in Tkvt'\o[1111cnts ill Illdi,l . 540
India . . . . . , . . . . . . . . . . . . . , . . . . . . 477 The institution of ombudsman in the States 547
Liability of private individuals to the State for committing a Working of Lokayuktas in the States 547
tort against its servants .. , . , . . . , . . . . . 478 Right to know . . . . , . . . . . 555
Privileges and immunities of the administratioll in suits 479 Right to Information Act, 200S . . 561
Privilege of notice . , . . , . , 479 Discretion to disobey . . . . . . . . . 567
Privilege to withhold documents . , . . , . 481 ~.Central Vigilance Commission (CVC) 569
~.
Immunity from statute operation . . , . . . . 491 .~. ....1~;r,.~

("
~i.;.:. '~ Points for discussion . . . . . . , 573

Immunity from estoppel (promissory estoppel) 493 Suggested readings . 574
Other privileges . . . .
504
Points for discussion
504 13. CONSTITUTIONAL PROTECTION TO CIVIL SERVANTS
505 AND THE ADMINISTRATIVE SERVICE TRIBUNAL 577
Suggested readings ,
Service rules . . . . , . . . . . . . . . . . 579
11. STATUTORY AND NON-STATUTORY PUBLIC TellLlre of office: the doctrine of pleasure 580
UNDERTAKINGS . , . , . . . . , . , . . . . . . . . . . . , 509 Limitations on pleasure doctrine 581
Relative merits and demerits of various organisational forms of COllstitutional safeguards to civil servants 582
public enterprises
510 Constituency of Article 311 . . . . . . . 582
Statutory public corporations , . . , . . . . . . 511 Procedural safeguards ...... . 587
Chief characteristics . , . . , .. , . , . . , 511 No termination by subordinate authority 587
Classification of statutory public corporations 516 Reasonable opportunity to defend , , , . 587
Liability in tort and contracts . . 517 Whether the report of the enquiry be shown to the delinquent
Status of the employees . . . . . 519 civil servant? . , . " . " . , . . . . . . . , . . . . 590
Control of statutory corporations 521 Can disciplinary actiol1 be taken against an enquiry officel'
Parliamentary control 521 exercising quasi-judicial powers for misconduct? 591
Government control
522 Consequential benefits on reinstatement . . . . , . . . . . 591
Power of dissolution, removal and appointment 522 Suspended employee must follow service nIles. , , . . . . 592
Power to issue directions 522 Protection of employees who acquire disability during service 592
Power to control finances 523 Jlldicial review of departmental proceedings . . . . . . . 592
523 Exceptions to the rule of reasonable opportunity to defend . . 593
Power to institute enquiries
I.XXII AnMINISTRA'lIVI' LAW
13, ST/\Tl.rl'OHY AND NON :~TJ\TI.1TOI?Y !)U nLTC

UNDEIZ'['J\KINCS ((;()ilirl ,)
C()I.1j't~;
/\r.hllilli';u"~1liv,' :;cnri,'<;: !; ;;rihllll:d!,; , , • , ,

COIlstilliliollal validiry of 1"h~ i\rhllillis1l'ariv(: 'J'I'il)\l1lals
Ad, Ins . , . , .... , .. ,. , .. 60S
Working of the aclmillistralivl: servi(;e I ribl111ah GOg
GIO
Poims for disclIssion
(, I I
SlIggested read i Ilgs . , , , . , ,
14. GLOBAL ADMINISTRATIVE LAW

hl9
Subject Index . , , , . . , . . . . , .

Administrative Law by IP Massey (8th Edition)

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fable of else:; • LXXlll

l. INTRODUCTION TO ADMINISTRATIVE LAW 1

2. CONCEPTUAL OBJECTIONS AGAINST THE GROWTH OF

3. ANATOMY OF ADMINISTRATIVE ACTION 47

l.XIV ADMINISTH.AI'IVI; L,\W OlnAIL£~1) CONTrrNTS I.XV

I.,'VI AlltvIlNIl\·IIl,\I' I Vl·. LAW

IIP-TAILI n ( ONTEN I. I.X IX

..... , LII.: k of' jllrisdil.: lioll 188

l~x ',:c!;S of jllrisdi"i iOl l

()l\)llbli c \:1w l('view . . , . , . . , .....

I whil(: t'x(,lcisilq!, POWCI' ViO/aii(1I1 of ill!: principle:; or ll:li lI fa l jllsti(:e J9 ()

IJLt'AIJ.ED co. TI Nrs 1.X,'1

II. ';T,\TtJTURY I\Nn NON-'iTJ\TUT.'Jf'.Y PlT['.T Ii

Immunity from statute operation . . , . . . . 491 .~. ....1~;r,.~

~i.;.:. '~ Points for discussion . . . . . . , 573

I.XXII AnMINISTRA'lIVI' LAW

13, ST/\Tl.rl'OHY AND NON :~TJ\TI.1TOI?Y !)U nLTC

/\r.hllilli';u"~1liv,' :;cnri,'<;: !; ;;rihllll:d!,; , , • , ,

14. GLOBAL ADMINISTRATIVE LAW

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