Donegan v Dublin City Council and Others

• Jurisdiction: Ireland
• Judge: McKechnie J.
• Judgment Date: 27 February 2012
• Neutral Citation: [2012] IESC 18
• Court: Supreme Court
• Date: 27 February 2012

[2012] IESC 18

THE SUPREME COURT

Murray J.

Hardiman J.

Fennelly J.

Finnegan J.

McKechnie J.

265/08

34/09, 54/09, 65/09

Donegan v Dublin City Council & Ors

BETWEEN

ANTHONY DONEGAN

PLAINTIFF/RESPONDENT

AND

DUBLIN CITY COUNCIL

FIRST NAMED DEFENDANT

AND

IRELAND AND THE ATTORNEY GENERAL

DEFENDANTS/APPELLANTS

DUBLIN CITY COUNCIL

COMPLAINANT

AND

LIAM GALLAGHER

DEFENDANT

AND

THE ATTORNEY GENERAL

NOTICE PARTY/APPELLANT

EUROPEAN CONVENTION ON HUMAN RIGHTS & FUNDAMENTAL FREEDOMS ART 6

EUROPEAN CONVENTION ON HUMAN RIGHTS & FUNDAMENTAL FREEDOMS ART 8

EUROPEAN CONVENTION ON HUMAN RIGHTS & FUNDAMENTAL FREEDOMS ART 13

EUROPEAN CONVENTION ON HUMAN RIGHTS & FUNDAMENTAL FREEDOMS ART 14

HOUSING ACT 1966 S62(3)

EUROPEAN CONVENTION ON HUMAN RIGHTS ACT 2003 S5

DONEGAN v DUBLIN CITY COUNCIL & ORS UNREP LAFFOY 8.5.2008 2008/14/2927 2008 IEHC 288

DUBLIN CITY COUNCIL v GALLAGHER UNREP O'NEILL 11.11.2008 2008/15/3150 2008 IEHC 354

HOUSING ACT 1988 S11(2)(B)

HOUSING (MISCELLANEOUS PROVISIONS) ACT 1997 S15

RESIDENTIAL TENANCIES ACT 2004 S197

HOUSING (MISCELLANEOUS PROVISIONS) ACT 1997 S3

HOUSING ACT 1966 S62

MISUSE OF DRUGS ACT 1977 S3

MISUSE OF DRUGS ACT 1977 S15

O'ROURKE, STATE v KELLY & AG 1983 IR 58

DUBLIN CITY COUNCIL v FENNELL 2005 1 IR 6042005 2 ILRM 288 2005/17/3473 2005 IESC 33

EUROPEAN CONVENTION ON HUMAN RIGHTS & FUNDAMENTAL FREEDOMS FIRST PROTOCOL ART 1

CONNORS v UNITED KINGDOM 2005 40 EHRR 9 16 BHRC 639 2004 HLR 52

LARKOS v CYPRUS 2000 30 EHRR 597 7 BHRC 244

BLECIC v CROATIA 2005 41 EHRR 13

HARROW LONDON BOROUGH COUNCIL v QAZI 2004 1 AC 9832003 3 WLR 792 2003 4 AER 461

KAY & ORS v LAMBETH LONDON BOROUGH COUNCIL; LEEDS CITY COUNCIL v PRICE & ORS 2006 2 AC 4652006 2 WLR 570 2006 4 AER 128

DOHERTY v BIRMINGHAM CITY COUNCIL 2007 HLR 32 2006 EWCA CIV 1739

SMITH v EVANS & ORS 2008 1 WLR 661 2008 3 FCR 591 2008 HRLR 18 2007 EWCA CIV 1318

LEONARD v DUBLIN CITY COUNCIL & ORS UNREP DUNNE 31.3.2008 2008/35/7594 2008 IEHC 79

EUROPEAN CONVENTION ON HUMAN RIGHTS ACT 2003 S3

EUROPEAN CONVENTION ON HUMAN RIGHTS ACT 2003 S2

EUROPEAN CONVENTION ON HUMAN RIGHTS ACT 2003 S5(1)

HOUSING ACT 1966 S60

HOUSING ACT 1970 S13

HUMAN RIGHTS ACT 1998 S3(1) (UK)

R v A (NO 2) 2002 1 AC 452001 2 WLR 1546 2001 3 AER 1

LANDLORD & TENANT LAW AMDT ACT IRL 1860 S86

CONSTITUTION ART 40.3.1

HAUGHEY, IN RE 1971 IR 217

FLANAGAN v UNIVERSITY COLLEGE DUBLIN 1988 IR 7241989 ILRM 469 1988/8/2214

MCCANN v UNITED KINGDOM 2008 47 EHRR 40 2008 2 FLR 899 2009 1 FCR 390 2008 ECHR 385

BYRNE v JUDGE SCALLY & DUBLIN CORP UNREP O CAOIMH 12.10.2000 2000/3/1065

WYNNE v DUBLIN CORP UNREP SHANLEY 22.7.1998

BRISTOL DISTRICT COUNCIL v CLARK 1975 1 WLR 1443 1975 3 AER 976

DUBLIN CORP v HAMILTON 1999 2 IR 4861998 2 ILRM 542 1998/17/6509

SECRETARY OF STATE FOR EDUCATION & SCIENCE v TAMESIDE METROPOLITAN BOROUGH COUNCIL 1977 AC 10141976 3 WLR 641 1976 3 AER 665

WOOLF & ORS DE SMITHS JUDICIAL REVIEW 6ED 2007 PARA 11.048

WOOLF & ORS DE SMITHS JUDICIAL REVIEW 6ED 2007 PARA 11.049

WOOLF & ORS DE SMITHS JUDICIAL REVIEW 6ED 2007 PARA 11.050

WOOLF & ORS DE SMITHS JUDICIAL REVIEW 6ED 2007 PARA 11.051

CRAIG JUDICIAL REVIEW APPEAL & FACTUAL ERROR 2004 PL 788

DALY JUDICIAL REVIEW OF A FACTUAL ERROR IN IRELAND 2008 30 DULJ 187

KEEGAN & LYSAGHT, STATE v STARDUST VICTIMS COMPENSATION TRIBUNAL 1986 IR 6421987 ILRM 202

CHAPMAN v UNITED KINGDOM 2001 33 EHRR 18 10 BHRC 48

EUROPEAN CONVENTION ON HUMAN RIGHTS & FUNDAMENTAL FREEDOMS ART 8(1)

EUROPEAN CONVENTION ON HUMAN RIGHTS & FUNDAMENTAL FREEDOMS ART 8(2)

PAULIC v CROATIA UNREP 22.10.2009 2009 ECHR 1614

MCMICHAEL v UNITED KINGDOM 1995 2 FCR 718 1995 20 EHRR 205

ASSOCIATED PROVINCIAL PICTURE HOUSES LTD v WEDNESBURY CORP 1948 1 KB 223 1947 2 AER 680

SWEETMAN v BORD PLEANALA & ORS 2008 1 IR 2772007 2 ILRM 328 2007/57/12251 2007 IEHC 153

MEADOWS v MIN FOR JUSTICE & ORS 2010 2 IR 7012011 2 ILRM 1572010 IESC 3

MCD (J) v L (P) & M (B) 2010 2 IR 199 2010 1 ILRM 461 2009/34/8411 2009 IESC 81

CONSTITUTION ART 29

EUROPEAN CONVENTION ON HUMAN RIGHTS & FUNDAMENTAL FREEDOMS ART 40

HOUSING ACT 1988 S11

ROCK v DUBLIN CITY COUNCIL & ORS UNREP SUPREME 8.2.2006 2006/50/10677

MCCONNELL v DUBLIN CITY COUNCIL UNREP SUPREME 15.12.2008 (EX TEMPORE)

LEONARD v DUBLIN CITY COUNCIL & ORS UNREP PEART 3.12.2007 2007/34/7112 2007 IEHC 404

LITZOUW, STATE v DISTRICT JUSTICE JOHNSON & DUBLIN CORP 1981 ILRM 273 1981/5/831

HOUSING ACT 1985 PART IV (UK)

HOUSING ACT 1985 SCHED 2 (UK)

MANCHESTER CITY COUNCIL v PINNOCK 2010 1 WLR 713 2010 3 AER 201 2009 EWCA CIV 852

HOUSING ACT 1996 S143E (UK)

O'ROURKE, STATE v KELLY & AG 1983 IR 58

R (COOMBES) v SECRETARY OF STATE FOR COMMUNITIES & LOCAL GOVT & ANOR 2010 2 AER 940 2010 L & TR 292010 ACD 942010 EWHC 666 (ADMIN)

HOUSING ACT 1985 S82 (UK)

LANDLORD & TENANT LAW AMDT ACT IRL 1860 S87

LANDLORD & TENANT LAW AMDT ACT IRL 1860 S88

R (QUINN) v JUSTICES OF THE COUNTY OF TIPPERARY 1883 12 LRI 393

KERRY CO COUNCIL v MCCARTHY 1997 2 ILRM 481 1997/9/3139

EUROPEAN CONVENTION ON HUMAN RIGHTS ACT 2003 S4

BRYAN v UNITED KINGDOM 1996 21 EHRR 342 1996 1 PLR 47 1996 2 EGLR 123

DORAN v IRELAND 2006 42 EHRR 13

HOUSING ACT 1966 S62(1)

HOUSING ACT 1966 S118

HOUSING ACT 1966 S62(4)

DUBLIN CORP v MCDONNELL 1946 IJ 18

SUMMARY JURISDICTION (IRL) ACT 1851 S15(3)

MCGRATH v MCDERMOTT (INSPECTOR OF TAXES) 1988 IR 258

HOWARD & ORS v CMRS OF PUBLIC WORKS IN IRELAND 1994 1 IR 101

BUCKLEY v UNITED KINGDOM 1997 23 EHRR 101

O'KEEFFE v BORD PLEANALA & O'BRIEN 1993 1 IR 391992 ILRM 237

TSFAYO v UNITED KINGDOM 2009 48 EHRR 18 2007 HLR 19

HOUSING LAW

Judicial review

Housing - Housing authority - Warrant for possession - Dispute on facts - Application to District Court for warrant for possession - Provision for summary procedure on application for warrant - Judicial review - Whether alternative remedy - Whether requirement for independent hearing on merits - Whether infringement of European Convention on Human Rights and Fundamental Freedoms - Human rights - Home - Right to respect for home - Whether interference in accordance with law - Whether interference had legitimate aim and necessary in democratic society - Independent hearing - Right to fair procedures - Interpretative obligation - Requirement that statutory provisions be applied by courts in manner compatible with Convention provisions - Extent of obligation - Express provision for summary procedure - Whether interpretative obligation gave rise to discretion to explore merits of matter - Whether District Court entitled to address merits of procedure - Whether adequate procedural safeguards provided - Whether availability of judicial review provided adequate procedural safeguard - Words - Meaning - "In any proceedings" - Whether court could grant declaration of incompatibility in context of consultative case stated - Associated Provincial Picture Houses Ltd v Wednesbury Corporation [1948] KB 223; R (on the Application of Bewry) v Norwich City Council [2001] All ER (D) 461; Blecic v Croatia (App No 59532/00) (2004) 41 EHRR 13; Bristol District Council v Clark [1975] 1 WLR 1443; Bryan v United Kingdom (App No 19178/91) (1996) 21 EHRR 342; Buckley v United Kingdom (App No 20348/92) (1996) 23 EHRR 101; Byrne v Scally (Unrep, Ó Caoimh J, 12/10/2000); Chapman v United Kingdom (App No 27238/95) (2001) 33 EHRR 399; Connors v United Kingdom (App No 66746/01) (2004) 40 EHRR 189; Coombes v Waltham Forest LBC and Secretary of State for the Communities and Local Government [2010] EWHC 666 (Admin), [2010] 2 All ER. 940; Doherty v Birmingham City Council [2006] EWCA Civ 1739, [2007] LGR 165; Donegan v Dublin City Council [2008] IEHC 288, (Unrep, Laffoy J, 8/5/2008); Doran v Ireland (App No 50389/99) (2006) 42 EHRR 13;Dublin City Council v Fennell [2005] IESC 33, [2005] 1 IR 604; Dublin City Council v Gallagher [2008] IEHC 354, (Unrep, Ó Néill J, 11/11/2008); Dublin Corporation v McDonnell [1946] IR Jur Rep 18; Dublin City Council v Hamilton [1999] 2 IR 486; Flanagan v University College Dublin [1988] 1 IR 724; Harrow LBC v Qazi [2003] UKHL 43, [2004] 1 AC 983; Howard v Commissioner of Public Works [1994] 1 IR 101; In re Haughey [1971] IR 217; Kay v Lambeth London Borough Council [2006] UKHL 10, [2006] 2 AC 465; Kerry County Council v McCarthy [1997] 2 ILRM 481; Larkos v Cyprus (App No 29515/95) (1999) 30 EHRR 597; Leeds City Council v Price [2006] UKHL 10, [2006] 2 AC 265; Leonard v Dublin City Council [2007] IEHC 404, (Unrep, Peart J, 3/12/2007); Leonard v Dublin City Council [2008] IEHC 79, (Unrep, Dunne J., 31/3/2008); JMcD v PL [2009] IESC 81, [2010] 2 IR 199; Meadows v Minister for Justice, Equality and Law Reform [2010] IESC 3, [2010] 2 IR 701; Manchester City Council v Pinnock [2010] UKSC 45, [2010] 1 WLR 713; McCann v United Kingdom (App No 19009/04) (Unrep, European Court of Human Rights, 13/5/2008); McConnell v Dublin City Council [2008] IESC 53 (Unrep, SC 15/12/2008); McGrath v McDermott [1988] IR 258; McMichael v United Kindgom (App No 16424/90) (1995) 20 EHRR 205; O'Keeffe v An Bord Plenála [1993] 1 IR 39; Paulic v Croatia (App No 3572/06) (Unrep, European Court of Human Rights, 22/10/2009);R v A [2002] 1 AC 45; R (Quinn) v Justices of Tipperary (1883) 12 LR Ir 393; Runa Begum v Tower Hamlets London Borough Council [2003] UKHL 5, [2003] 2 AC 430; Rock v Dublin City Council (Unrep, SC, 8/2/2006); Secretary of State, Education and Science v Tameside [1977] AC 1014; Smith v Evans [2007] EWCA Civ 1318, [2008] 1 WLR 661; The State (Keegan) v Stardust Victims Compensation Tribunal [1986] IR 642; State (Kathleen Litzouw) v Dublin Corporation [1981] ILRM 273; The State (O'Rourke) v Kelly [1983] IR 58; Sweetman v An Bord Pleanála [2007] IEHC 153, [2007] 2 ILRM 328 and Tsfayo v United Kingdom (App No. 60860/00) (2009) 48 EHRR 18 considered - Rules of the Superior Courts 1986 ( SI 15/1986 ), O. 60 - Housing Act 1966 (No 21), ss 11, 60...