Investigating an Alternative Administrative-Law System in South Africa

337 Pages·2013·4.17 MB·English

by  Petrus Maree

Investigating an Alternative Administrative-Law
System in South Africa

by
Petrus Jacobus Hermanus Maree

Dissertation presented for the degree of Doctor of Laws in the
Faculty of Law at
Stellenbosch University

Supervisor: Prof Geo Quinot

December 2013
Stellenbosch University http://scholar.sun.ac.za

DECLARATION

By submitting this thesis, I declare that the entirety of the work contained therein is
my own, original work, that I am the sole author thereof (save to the extent explicitly
otherwise stated), that reproduction and publication thereof by Stellenbosch
University will not infringe any third party rights and that I have not previously in its
entirety or in part submitted it for obtaining any qualification.

December 2013

Copyright © 2013 Stellenbosch University

All rights reserved
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Hierdie proefskrif word opgedra aan Andries Naudé, veral hoofstuk drie.

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ABSTRACT

This dissertation considers the question whether there are viable alternatives to the
conceptual framework within which the South African administrative-law system
operates, given that the administration now functions under new constitutional
demands and new approaches to administrative engagement. The intention is not to
proffer concrete recommendations for such a system, but only to propose an approach
by means of which questions concerning the legal regulation of the administration and
administrative function may be addressed.
The dissertation introduces the concept of the contextualised administrative-law
system. This concept emphasises the legal relationship between the public
administration and the judiciary, but is not limited to this relationship. The
administrative-law system does not operate in a vacuum, though, and is informed by
the conceptual framework within which the system operates. The system is also a
function of its geo-political and socio-economic context.
The historical development of the doctrine of separation of powers, as one aspect
of the conceptual framework, is traced. Thereby the normative, dynamic and flexible
nature of the doctrine is established. On this basis, the potential and value of a fourth
branch, the administration, within the separation-of-powers doctrine is assessed. By
implication, the administrative function would constitute a fourth, distinct function in
addition to the legislative, executive and judicial functions.
The concept of the administrative-law system is consequently applied to the South
African context. Firstly, the development of the South African system is outlined and,
secondly, the administrative-law relationship is analysed. This discussion establishes
that the system is characterised by an embryonic administrative law, the equating of
administrative law and judicial review, an emphasis on the rule-of-law or “red-light”
approach to administrative regulation, a rhetoric of deference, and the supremacy of
the Constitution of the Republic of South Africa, 1996. Therefore, the system must be
informed by the Constitution and, arguably, by Karl Klare’s project of transformative
constitutionalism and Etienne Mureinik’s “culture of justification”.
The content of the separation of powers is also investigated by means of an
historical analysis of the considerations that rationalise the existence of an
independent administrative jurisdiction in France. This entails an exposition of the
Conseil d’État’s structure, organisation and dual function. Principles that describe the
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French system, other than the pure separation of powers, are discussed, namely, the
duality of jurisdiction, the separation of administrative and judicial authorities, the
separation of the administrative jurisdiction and active administration, the maxim “to
judge the administration is still administering”, and the hybrid nature of
administrative litigation.
The legal regulation of public contracts can be regarded as a doctrinal perspective
of the administrative-law system. The public contract is discussed as one form of
administration, due to its conceptual ambiguity as a legal instrument on the boundary
between public and private law and due to the administration’s increasing contractual
activity. To an extent the contrat administratif of French law indicates that particular
legal rules are an extension of the broader principles, considerations and institutional
structures discussed in the preceding sections.
This dissertation introduces an approach that emphasises the relationship between
the administration and the judiciary as well as the conceptual framework within which
the administrative-law system operates. Through the application of this approach to
the South African context and to public contracting the key concepts and debates
underlying an appropriate administrative-law system in South Africa are identified
and investigated. This constitutes a platform for the development of a particular
administrative-law system and an exposition of viable alternatives to the conceptual
framework within which the system operates.

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OPSOMMING

Hierdie proefskrif ondersoek die vraag of daar lewensvatbare alternatiewe tot die
konseptuele raamwerk van die huidige Suid-Afrikaanse administratiefreg-stelsel
moontlik is. Dié vraag word gestel teen die agtergrond van die nuwe grondwetlike
vereistes en benaderings waaraan administratiewe interaksie moet voldoen. Die
bedoeling is nie om aanbevelings vir die bestaande stelsel te maak nie, maar eerder
om ‘n benadering voor te stel waarin vrae oor die regulering van die administrasie en
die administratiewe funksie geakkommodeer kan word.
In die proses skep die proefskrif ‘n nuwe konsep: die administratiefreg-stelsel in
konteks, wat die regsverhouding tussen die administrasie en die regbank beklemtoon,
terwyl dit nie beperk is tot die verhouding nie. Uiteraard word die administratiefreg-
stelsel beïnvloed deur die konseptuele raamwerk waarin dit funksioneer, terwyl dit
verder ook ‘n funksie is van sy geopolitiese en sosio-ekonomiese konteks.
Die historiese ontwikkeling van die skeiding van magte, een aspek van die
konseptuele raamwerk, word bespreek en daardeur word die normatiewe, dinamiese
en buigsame aard van die leerstuk bevestig. Hiermee word die potensiaal en waarde
van ‘n vierde been, naamlik die administrasie, binne die skeiding-van-magte leerstuk
oorweeg, met die implikasie dat die administratiewe funksie ‘n onafhanklike, vierde
funksie vestig, benewens die wetgewende, uitvoerende en regsprekende funksies.
Die konsep van die administratiefreg-stelsel word gevolglik toegepas op die Suid-
Afrikaanse konteks. Eerstens word die ontwikkeling van die Suid-Afrikaanse stelsel
uiteengesit en dan tweedens word die administratiefreg-verhouding ontleed. Hierdie
bespreking bevestig dat die stelsel gekenmerk word deur ‘n onderontwikkelde
administratiefreg, die gelykstelling van die administratiefreg en geregtelike
hersiening, die beklemtoning van die regstaat en ‘n sogenaamde rooilig-benadering
tot administratiewe regulasie, ‘n retoriek van geregtike agting, en die oppergesag van
die Grondwet van die Republiek van Suid-Afrika, 1996. Juis as gevolg hiervan moet
die stelsel op die Grondwet gegrond word. Daar word ook geargumenteer dat Karl
Klare se transformerende konstitusionalisme sowel as Etienne Mureinik se kultuur
van regverdiging die stelsel vorm behoort te gee.
Die skeiding van magte se inhoud word ook aan ‘n historiese ontleding van Franse
reg onderwerp om sodoende die rasionaal agter die onafhanklike administratiewe
jurisdiksie in Frankryk te verduidelik. Dit behels ‘n uiteensetting van die Conseil
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d’État se struktuur, interne organisering en tweeledige funksie. Die beginsels wat die
Franse stelsel beskryf, bo-en-behalwe die suiwer skeiding van magte, word bespreek
en dit is by name die dualiteit van jurisdiksie, die skeiding van administratiewe en
regsprekende owerhede, die skeiding van die administratiewe jurisdiksie en aktiewe
administrasie, die leuse wanneer die administrasie beoordeel word, word daar steeds
administreer, en die gemengde aard van administratiewe regsgedinge.
Die openbare kontrak word bespreek as ‘n instrument van administrasie gegewe
die konseptuele dubbelsinnigheid van daardie regskonsep, wat op die grens tussen
publiek- en privaatreg lê, en as gevolg van die administrasie se toenemende
kontraktuele aktiwiteit. In ‘n mate dui die Franse contrat administratif daarop dat
bepaalde regsreëls ‘n uitbreiding van die breër beginsels, oorwegings en institusionele
strukture is, soos in die voorafgaande afdelings bespreek word.
Dus stel hierdie proefskrif ‘n benadering voor wat die verhouding tussen die
administrasie en die regbank, sowel as die konseptuele raamwerk waarbinne die
administratiefreg-stelsel funksioneer, beklemtoon. Deur hierdie benadering toe te pas
op die Suid-Afrikaanse konteks, en op openbare kontraktering, word die konsepte en
debatte geïdentifiseer en ondersoek wat ‘n gepaste administratiefreg-stelsel
onderskryf. Dit vorm ‘n basis vir die ontwikkeling van ‘n bepaalde administratiefreg-
stelsel en die uiteensetting van lewensvatbare alternatiewe tot die konseptuele
raamwerk waarbinne die stelsel funksioneer.

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ACKNOWLEDGEMENTS

A large number of people contributed to the successful completion of this
dissertation. I would like to extend my gratitude to everyone who supported me
during this time, even where a single conversation contributed to the final product.
In particular, I gratefully acknowledge the financial assistance of the Stellenbosch
University Hope Project: Law Faculty’s Strategic Research and Outreach Initiative:
Combating Poverty, Homelessness and Socio-economic Vulnerability under the
Constitution, the Ciucci Centre for Law & Social Development, and the Socio-
economic Rights and Administrative Justice Research Project (SERAJ), without
which this dissertation could not have been written. Special thanks is due to the Hope
Project and SERAJ for the provision of an office and other logistical support.
I wish to thank Professor AJ van der Walt and Professor Sandy Liebenberg for
their sound and enabling instruction in post-graduate research, especially during the
early stages of my dissertation. The academic environment of the CL Marais building,
under their watch, was also much appreciated. I am also indebted to Mrs King of the
Public Law Department and Gerda Adams for administrative and practical support
that has proved vital to the completion of this dissertation.
I would like to extend a word of thanks to Gustav Muller who communicated his
confidence in my work. I am also particularly grateful for his regular calls and
reassurance after his departure from the Stellenbosch Law Faculty.
I am especially grateful to Professor Quinot, my promotor, for several reasons.
Without his intervention during the final year of my LLB, I would not have
considered post-graduate study. Thanks to his expert, inspirational and
accommodating guidance, the university experience turned out to be what I had
always hoped it would be. His enthusiasm for the intellectual and the critical
characterised our exchanges as collegial and interactive rather than hierarchical.
On a more personal note, I am very grateful to my entire family for their
unwavering confidence in my abilities, despite my own doubts. Their unconditional
support, love and interest sustained me to the end. Paps, Mams, Dawid, Patricia, Ian,
Suzanne, Albertus, Stephan and Naómi, I am grateful to you all.
Finally, I am forever grateful to Christine, my loving wife, who, from our wedding
day, graciously and patiently endured the presence of this dissertation in our life.
More than anyone she encouraged me and shared my trials and tribulations. Without
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her empathy and perspective this dissertation may well have met a premature end. I
am immensely grateful that she selflessly tolerated her distracted husband, not least
over weekends and holidays. Her contribution to the successful completion of this
dissertation is fondly acknowledged.

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TABLE OF CONTENTS

DECLARATION i

ABSTRACT iii

OPSOMMING v

ACKNOWLEDGEMENTS vii

DETAILED TABLE OF CONTENTS xi

LIST OF ABBREVIATIONS xvii

CHAPTER 1
Investigating an Alternative Administrative-Law System in South Africa 1

CHAPTER 2
The Framework and Context within which Administrative-Law Systems Operate 14

CHAPTER 3
The South African Administrative-Law System 57

CHAPTER 4
The French Administrative-Law System 140

CHAPTER 5
The Public Law of Contract and the Contrat Administratif 222

CHAPTER 6
Conclusion 261

GLOSSARY OF FRENCH TERMS 290
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