Neat Domestic Trading Pty Ltd v Awb Ltd and Another

[2003] HCA 35

Neat Domestic Trading Pty Ltd
vAwb Ltd and Another

Court:
High Court of Australia

Judges: Gleeson CJ
McHugh J
Kirby J
Hayne J
Callinan J

Subject References:
Administrative law
Administrative decisions
Judicial review
Whether private company making decision under an enactment
(CTH) Administrative Decisions (Judicial Review) Act 1977 ss 3(1), 5(2)(f), 6(2)(f)
(CTH) Wheat Marketing Act 1989 s 57

Legislative References:
Administrative Decisions (Judicial Review) Act 1977 - s 3(1); s 5(2)(f); s 6(2)(f)
Wheat Marketing Act 1989 - s 57

Hearing date: 14 November 2002
Judgment date: 19 June 2003

Canberra


Orders

[156] No separate submissions were received about the form of the orders suggested by NEAT in the event that it succeeded in this court. This court should make orders in that form.

[157] The appeal should be allowed with costs. The judgment of the Full Court of the Federal Court of Australia should be set aside. In lieu thereof, it should be ordered that the appeal to that court be allowed; the judgment of the primary judge should be set aside so far as it related to the appellant's claims against AWB and AWBI. In place thereof, this court should:

(1)
Declare that the decisions of AWBI refusing to give approval to the bulk export of wheat the subject of the applications referred to in para 8 of the amended statement of claim:

(a)
involved the application without regard to the merits of the individual case of a policy against the approval of the export of wheat in bulk; and
(b)
for that reason, were not done under s 57 of the Wheat Marketing Act 1989 (Cth) or for the purposes of that section within the meaning of s 57(6) of that Act;

(2)
Declare that each of the purported decisions was unlawful and void;
(3)
Order that each of the purported decisions be set aside;
(4)
Order that the proceedings be returned to the Federal Court for the determination of outstanding issues; and
(5)
Order that AWB and AWBI pay the appellant's costs in the Federal Court.

Appeal dismissed with costs.

[1]
Neat Domestic Trading Pty Ltd v Wheat Export Authority (2000) 64 ALD 29

[2]
Neat Domestic Trading Pty Ltd v AWB Ltd (2001) 114 FCR 1

[3]
R v Anderson ; Ex parte Ipec-Air Pty Ltd (1965) 113 CLR 177

[4]
[1998] AC 407 at 496-7; [1997] 3 All ER 97 at 120

[5]
Water Conservation and Irrigation Commission (NSW) v Browning (1947) 74 CLR 492 at 505 per Dixon J

[6]
British Oxygen Co Ltd v Minister of Technology [1971] AC 610 at 624-5 ; [1970] 3 All ER 165 at 169-71

[7]
(1982) 40 ALR 707 at 714

[8]
See, for example, Dried Fruits Act 1958 (Vic)

[9]
See, for example, Apple and Pear Organization Act 1938 (Cth); Dairy Produce Export Control Act 1924 (Cth)

[10]
Wheat Marketing Act 1989 (Cth) s 84

[11]
Neat Domestic Trading Pty Ltd v Wheat Export Authority (2000) 64 ALD 29

[12]
(2000) 64 ALD 29 at 56 [119]-[120]

[13]
(2000) 64 ALD 29 at 58 [131], 62-3 [154], 63 [158]

[14]
(2000) 64 ALD 29 at 63 [158]

[15]
Neat Domestic Trading Pty Ltd v AWB Ltd (2001) 114 FCR 1

[16]
(2001) 114 FCR 1 at 8 [26]

[17]
(2001) 114 FCR 1 at 9 [30]

[18]
(2001) 114 FCR 1 at 9 [32]

[19]
(2001) 114 FCR 1 at 10 [38]

[20]
(2001) 114 FCR 1 at 13 [53]

[21]
(2001) 114 FCR 1 at 11 [43] per Mansfield J, 12-13 [52] per Gyles J

[22]
Wheat Industry Stabilization Act 1946 (Cth); Wheat Industry Stabilization Act 1948 (Cth); Wheat Industry Stabilization Act 1954 (Cth); Wheat Industry Stabilization Act 1958 (Cth); Wheat Industry Stabilization Act 1963 (Cth); Wheat Industry Stabilization Act 1974 (Cth); Wheat Marketing Act 1979 (Cth); Wheat Marketing Act 1984 (Cth)

[23]
See, for example, Wheat Industry Assistance Act 1938 (Cth); Wheat Industry (War-time Control) Act 1939 (Cth)

[24]
The board of the same name created by the Wheat Industry Stabilization Act 1946 (Cth) was not continued in existence by the 1948 Act The latter Act created a new board

[25]
s 57(1)

[26]
s 57(1A)

[27]
ss 5(2)(f) and 6(2)(f)

[28]
s 3(1), definition of "decision to which this Act applies"

[29]
Beermann, "Administrative-Law-Like Obligations on Private[Ized] Entities" (2002) 49 UCLA Law Review 1717

[30]
Australian Broadcasting Tribunal v Bond (1990) 170 CLR 321 at 336-7 ; 94 ALR 11 at 23-4 ; 21 ALD 1 at 10-11 per Mason CJ

[31]
cf Attorney-General (Cth) v Oates (1999) 198 CLR 162 at 171-2 [16] ; 164 ALR 393 at 398 and Byrne v Garrisson [1965] VR 523 at 532

[32]
Corporations Law of Victoria s 124

[33]
Minister for Immigration and Ethnic Affairs v Mayer (1985) 157 CLR 290 at 301 ; 61 ALR 609 at 617 See also Attorney-General (Cth) v Oates (1999) 198 CLR 162 at 171-2 [16] ; 164 ALR 393 at 398

[34]
Minister for Aboriginal Affairs v Peko-Wallsend Ltd (1986) 162 CLR 24 at 38-40 ; 66 ALR 299 at 307-9 per Mason J

[35]
(2002) 209 CLR 478 at 503-4 [70]; 188 ALR 353 at 371-2; cf Hot Holdings Pty Ltd v Creasy (2002) 193 ALR 90 at 111-12 [94]-[96] ; 77 ALJR 70 at 85-6

[36]
From the Full Court of the Federal Court of Australia: Neat Domestic Trading Pty Ltd v AWB Ltd (2001) 114 FCR 1

[37]
Administrative Review Council, The Scope of Judicial Review , Discussion Paper, 2003, pp 112-14 [5196]-[5207]

[38]
cf R v Panel on Take-overs and Mergers, Ex parte Datafin Plc [1987] QB 815 at 838-9 ; [1987] 1 All ER 564 at 576-8 See also Mason, "Australian Administrative Law Compared with Overseas Models of Administrative Law" (2001) 31 AIAL Forum 45 at 59-60

[39]
Reasons of Gleeson CJ at [8]-[16]; reasons of McHugh, Hayne and Callinan JJ (joint reasons) at [32]-[35]

[40]
Dunsdorfs, The Australian Wheat-growing Industry 1788-1948 , 1956

[41]
Neat Domestic Trading Pty Ltd v Wheat Export Authority (2000) 64 ALD 29 at 43 [52]

[42]
(2000) 64 ALD 29 at 43 [53]

[43]
Explanatory memorandum at [20]

[44]
This is "nominated company B" The same descriptions are used to refer to the respondent companies as are used in the reasons of Gleeson CJ at [4]

[45]
See the Act s 57(1) and (1A)

[46]
The Act s 57(3A)

[47]
The Act s 57(3B)

[48]
(2000) 64 ALD 29 at 60 [140]

[49]
(2000) 64 ALD 29 at 57 [122]

[50]
(2000) 64 ALD 29 at 57 [122]

[51]
(2000) 64 ALD 29 at 56-7 [121] (emphasis added)

[52]
(2000) 64 ALD 29 at 63 [157]

[53]
State Rail Authority (NSW) v Earthline Constructions Pty Ltd (in liq ) (1999) 160 ALR 588 at 607 [63], 620-2 [93], 630 [139]; 73 ALJR 306 at 321, 331-2, 338; Fox v Percy (2003) 197 ALR 201 at 209 [29], 225 [96]-[97]

[54]
Reasons of Gleeson CJ at [5], [9]; joint reasons at [42]-[43]

[55]
(2001) 114 FCR 1 at 9-10 [37]

[56]
The Act s 57(6)

[57]
Darling Casino Ltd v New South Wales Casino Control Authority (1997) 191 CLR 602 at 635 ; 143 ALR 55 at 77 See also Little v Commonwealth (1947) 75 CLR 94 at 108, 110, 112; Australian National Airlines Commission v Newman (1987) 162 CLR 466 at 471 ; 70 ALR 275 at 278; G Scammell & Nephew Ltd v Hurley [1929] 1 KB 419 at 427-9

[58]
(2001) 114 FCR 1 at 9 [33], 12 [47], 13 [54]

[59]
Roberts v Bass (2002) 194 ALR 161 at 199-200 [143]-[146] ; 77 ALJR 292 at 320-1

[60]
(1999) 202 CLR 133 at 261 [374]-[375]; 167 ALR 392 at 481; 60 ALD 1 at 91

[61]
(1999) 202 CLR 133 at 262 [376]; 167 ALR 392 at 481; 60 ALD 1 at 91 with reference to Egan v Willis (1998) 195 CLR 424 ; 158 ALR 527

[62]
(1999) 202 CLR 133 at 262 [377]; 167 ALR 392 at 481; 60 ALD 1 at 91 citing Hughes Aircraft Systems International v Airservices Australia (1997) 76 FCR 151 at 179-80 ; 146 ALR 1 at 24 per Finn J See also Finn, "A Sovereign People, A Public Trust" in Finn (ed), Essays on Law and Government , vol 1, 1995, p 1 at pp 12-13

[63]
Freeman, "Extending Public Law Norms Through Privatization" (2003) 116 Harvard Law Review 1285 at 1302-3

[64]
ADJR Act s 5(1)

[65]
(2000) 64 ALD 29 at 35 [23] with reference to Australian Broadcasting Tribunal v Bond (1990) 170 CLR 321 ; 94 ALR 11 ; 21 ALD 1 ( Bond )

[66]
cf Administrative Procedure Act 1946 (US): 5 USC §551(1) and the definition of "agency" to mean "each authority of the Government of the United States"

[67]
(2000) 64 ALD 29 at 38 [33]

[68]
(2000) 64 ALD 29 at 40 [44]

[69]
(2000) 64 ALD 29 at 36 [27]-[28] with reference to Bond (1990) 170 CLR 321 at 335-6 ; 94 ALR 11 at 22-3 ; 21 ALD 1 at 9-10 and Evans v Friemann (1981) 35 ALR 428 at 434 ; 3 ALD 326 at 331

[70]
(2000) 64 ALD 29 at 37 [29] citing Hamblin v Duffy (1981) 34 ALR 333 ; 3 ALD 153

[71]
(2000) 64 ALD 29 at 37 [30]

[72]
(1982) 40 ALR 707 at 714

[73]
The Act s 57(1)(a)

[74]
The Act s 57(3B)

[75]
Constitution s 75(v)

[76]
cf Administrative Review Council, Government Business Enterprises and Commonwealth Administrative Law, Report No 38, 1995; Taggart, "The Impact of Corporatisation and Privatisation on Administrative Law" (1992) 51 Australian Journal of Public Administration 368

[77]
Sinclair v Maryborough Mining Warden (1975) 132 CLR 473 at 481 ; 5 ALR 513 at 519-20

[78]
(1979) 143 CLR 242 at 262; 25 ALR 1 at 18-19 ( Forbes )

[79]
(1979) 143 CLR 242 at 264; 25 ALR 1 at 20

[80]
(1979) 143 CLR 242 at 264; 25 ALR 1 at 20

[81]
(1979) 143 CLR 242 at 269; 25 ALR 1 at 24

[82]
(1979) 143 CLR 242 at 275; 25 ALR 1 at 29

[83]
[1987] QB 815 ; [1987] 1 All ER 564 ( Datafin )

[84]
[1987] QB 815 at 847; [1987] 1 All ER 564 at 583-4

[85]
[1987] QB 815 at 849; [1987] 1 All ER 564 at 585

[86]
[1987] QB 815 at 849; [1987] 1 All ER 564 at 585

[87]
[1987] QB 815 at 838; [1987] 1 All ER 564 at 576-7

[88]
[1987] QB 815 at 838; [1987] 1 All ER 564 at 576-7

[89]
[1987] QB 815 at 838, 851-2; [1987] 1 All ER 564 at 576-7, 586-7

[90]
[1987] QB 815 at 839; [1987] 1 All ER 564 at 577-8

[91]
(2003) 198 ALR 59 at 94 [155]

[92]
Craig, "Public Law and Control over Private Power" in Taggart (ed), The Province of Administrative Law , 1997, p 196 at pp 198-9

[93]
(1990) 170 CLR 321 at 336; 94 ALR 11 at 23; 21 ALD 1 at 10

[94]
(1990) 170 CLR 321 at 337; 94 ALR 11 at 23; 21 ALD 1 at 11

[95]
(2000) 64 ALD 29 at 38-9 [36]

[96]
(1984) 155 CLR 234 at 241; 55 ALR 179 at 184; 6 ALD 223 at 227

[97]
eg James Richardson Corp Pty Ltd v Federal Airports Corp (1992) 117 ALR 277 ; General Newspapers Pty Ltd v Telstra Corp (1993) 45 FCR 164 ; 117 ALR 629 See Allars, "Private Law But Public Power: Removing Administrative Law Review From Government Business Enterprises" (1995) 6 Public Law Review 44

[98]
Australian National University v Burns (1982) 43 ALR 25 ; 5 ALD 67

[99]
The Act ss 3, 57, 84

[100]
The Act s 57(1) and (1A)

[101]
The Act s 57(3A)

[102]
The Act s 57(3B)

[103]
cf Australian National Airlines Commission v Newman (1987) 162 CLR 466 at 471, 476 ; 70 ALR 275 at 278, 281-2; Suatu Holdings Pty Ltd v Australian Postal Corp (1989) 86 ALR 532 at 541 per Gummow J

[104]
cf joint reasons at [58]

[105]
(2000) 64 ALD 29 at 40 [42]

[106]
(2001) 114 FCR 1 at 13 [53]

[107]
cf Richardson v McKnight 521 US 399 (1997) at 412

[108]
(2000) 64 ALD 29 at 40 [42]

[109]
cf Yarmirr v Australian Telecommunications Corp (1990) 96 ALR 739 ; 20 ALD 562

[110]
(2001) 114 FCR 1 at 8 [26]

[111]
(2001) 114 FCR 1 at 9 [31]

[112]
(2001) 114 FCR 1 at 10 [38]

[113]
(2001) 114 FCR 1 at 12-13 [52]

[114]
(2001) 114 FCR 1 at 13 [53]

[115]
cf Australian Competition and Consumer Commission v C G Berbatis Holdings Pty Ltd (2003) 197 ALR 153 at 179 [96]

[116]
Constitution s 75(iii) and (v)

[117]
cf Gay Law Students Association v Pacific Telephone And Telegraph Co 595 P 2 d 592 (1979) at 597-602 See also West v Atkins 487 US 42 (1988) at 54-7

[118]
See Whincop and Keyes, "Corporation, Contract, Community: An Analysis of Governance in the Privatisation of Public Enterprise and the Publicisation of Private Corporate Law" (1997) 25 Federal Law Review 51

[119]
(2001) 114 FCR 1 at 9 [30]; cf at 12-13 [52]

[120]
eg Green v Daniels (1977) 13 ALR 1 at 8-9 ; 51 ALJR 463 at 467; Rendell v Release on Licence Board (1987) 10 NSWLR 499 at 503-4 ; 14 ALD 134 ; Carroll v Sydney City Council (1989) 15 NSWLR 541 at 550; British Oxygen Co Ltd v Minister of Technology [1971] AC 610 at 625 ; [1970] 3 All ER 156 at 170-1; R v Secretary of State for the Home Department ; Ex parte Venables [1998] AC 407 at 496-7 ; [1997] 3 All ER 97 at 120; cf Bread Manufacturers of New South Wales v Evans (1981) 180 CLR 404 at 418 ; 38 ALR 93 at 104-5

[121]
Peninsula Anglican Boys' School v Ryan (1985) 7 FCR 415 ; 69 ALR 555 ; 8 ALD 418

[122]
cf Water Conservation and Irrigation Commission (NSW) v Browning (1947) 74 CLR 492 at 504-5; R v Anderson ; Ex parte Ipec-Air Pty Ltd (1965) 113 CLR 177 at 189-90

[123]
cf Evans v Donaldson (1909) 9 CLR 140 at 152-3

[124]
The Act s 57(3D)

[125]
The Act s 57(7)

[126]
cf Puntoriero v Water Administration Ministerial Corp (1999) 199 CLR 575 at 578 [4], 587-8 [33]-[34], 594-5 [59]; 165 ALR 337 at 339, 347, 352-3

[127]
Explanatory memorandum at [19]

[128]
Explanatory memorandum at [20]

[129]
Joint reasons at [42]

[130]
cf Shergold v Tanner (2002) 209 CLR 126 at 135 [27], 136-7 [34]-[35]; 188 ALR 302 at 307, 309; 68 ALD 1 at 8, 9-10

[131]
(2000) 64 ALD 29 at 56 [119]

[132]
(2000) 64 ALD 29 at 56 [121]

[133]
(2000) 64 ALD 29 at 63 [157]

[134]
(2000) 64 ALD 29 at 63 [157]

[135]
(2001) 114 FCR 1 at 12 [46]

[136]
R v Port of London Authority ; Ex parte Kynoch Ltd [1919] 1 KB 176 at 184; Green v Daniels (1977) 13 ALR 1 at 9 ; 51 ALJR 463 at 467; Kioa v West (1985) 159 CLR 550 at 632-3 ; 62 ALR 321 at 382-4; Howells v Nagrad Nominees Pty Ltd (1982) 43 ALR 283 at 306-7; Khan v Minister for Immigration and Ethnic Affairs (1987) 14 ALD 291 at 292

[137]
R v Port of London Authority ; Ex parte Kynoch Ltd [1919] 1 KB 176 at 184

[138]
The Act s 57(6)


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