Thomas Mone v an Bord Pleanála and Others

• Jurisdiction: Ireland
• Court: High Court
• Judge: Mr. Justice William M. McKechnie
• Judgment Date: 18 May 2010
• Neutral Citation: [2010] IEHC 395
• Date: 18 May 2010

Mone v Bord Pleanála

JUDICIAL REVIEW

IN THE MATTER OF AN APPLICATION PURSUANT TO SECTION 50 OF THE PLANNING AND DEVELOPMENT ACT 2000 (AS AMENDED)

AND

IN THE MATTER OF AN APPLICATION

BETWEEN

THOMAS MONE

APPLICANT

AND

AN BORD PLEANÁLA

RESPONDENT

AND

PATRICK MONE

AND

MONAGHAN COUNTY COUNCIL

NOTICE PARTIES

[2010] IEHC 395

[No. 534 J.R./2009]

THE HIGH COURT

PLANNING AND ENVIRONMENTAL LAW

Judicial review

Error of law on face of record - Unauthorised development - Regard to previous decisions - Withdrawal of application - Requirements for leave - Substantial grounds - Substantial interest - Late challenge to validity of permission - Time limits - Power to quash administrative determination - Certiorari - Decision allowing notice party to rebuild petrol station - Whether planning permission valid - Whether grant issued without relevant statutory basis - Whether respondent erred in law and fact - Whether respondent failed to properly investigate planning history - Whether respondent went against own statutory declaration - Whether respondent considered all documentation - Whether respondent had regard to irrelevant considerations - Whether decision irrational and unreasonable - Whether substantial grounds and substantial interest - De Burca v Wicklow County Manager [2009] IEHC 54, (Unrep, Hedigan J, 4/2/2009); Anisminic Ltd v Foreign Compensation Commission [1969] 2 AC 147; Killeen v DPP [1997] 3 IR 218; Irish Hardware Association v South Dublin County Council (Unrep, Butler J, 19/7/2000); State (Kenny and Hussey) v An Bord Pleanála (Unrep, Carroll J, 23/2/1984; SC, 20/12/1984); Grealish v An Bord Pleanála [2005] IEHC 24, [2006] 1 ILRM 140; In re Green Dale Building Co [1977] IR 256; Ashbourne Holding Ltd v An Bord Pleanála [2003] 2 IR 114; Mulcreevy v Minister for Environment [2004] IESC 5, [2004] 1 IR 72; McNamara v An Bord Pleanála [1995] 2 ILRM 125; Harding v Cork County Council [2008] 4 IR 318; In re the Illegal Immigrants (Trafficking) Bill 1999 [2000] 2 IR 360; Kenny v An Bord Pleanála [2001] 1 IR 565; O'Brien v Dun Laoghaire Rathdown County Council [2006] IEHC 177, (Unrep, Ó Néill J, 1/6/2006); White v Dublin City Council [2004] 1 IR 545; KSK Enterprises Ltd v An Bord Pleanála [1994] 2 IR 128; Square Meals v Dunstable Corporation [1974] 1 WLR 59; O'Keeffe v An Bord Pleanála [1993] 1 IR 39; The State (Cussen) v Brennan [1981] IR 181; Harrington v An Bord Pleanála [2005] IEHC 344, [2006] 1 IR 388; Cumann Tomas Dáibhis v South Dublin County Council [2007] IEHC 118, (Unrep, Peart J, 14/6/2007); Lancefort Ltd v An Bord Pleanála (No 2) [1999] 2 IR 270; The State (Holland) v Kennedy [1977] IR 193; State (Holland) v Kennedy [1977] IR 193; Harte v Labour Court [1996] 2 IR 171; R v Northumberland Compensation Appeal Tribunal ex parte Shaw [1952] 1 KB 338; Ryan v Compensation Tribunal (Unrep, Costello J, 15.11.1996); Bannon v EAT [1993] 1 IR 500; The State (Abenglen Properties Ltd) v Corporation of Dublin [1984] IR 381; In re Doherty [1988] NI 14 and Athlone Woollen Mills Co Ltd v Athlone Urban District Council [1950] IR 1 considered - Local Government (Planning and Development) Act 1992 (No 14), ss 16 and 19 - Planning and Development Act 2000 (No 30), ss 2, 38, 50 and 50A - Planning and Development (Strategic Infrastructure) Act 2006 (No 27), ss 13 and 21 - Local Government (Planning and Development) Act 1963 (No 20), s 82(3A) - Planning and Development Regulations 2001 (SI 600/2001), reg 29- Relief granted (2009/534JR - McKechnie J - 18/5/2010) [2010] IEHC 395

Mone v An Bord Pleanála

LOCAL GOVT (PLANNING & DEVELOPMENT) ACT 1992 S16

LOCAL GOVT (PLANNING & DEVELOPMENT) ACT 1992 S16(3)

PLANNING & DEVELOPMENT ACT 2000 S2

DE BURCA v WICKLOW CO MANAGER & CHAIRPERSON OF WICKLOW CO COUNCIL UNREP HEDIGAN 4.2.2009 2009/12/2756 2009 IEHC 54

ANISMINIC LTD v FOREIGN COMPENSATION CMSN & ANOR 1969 2 AC 147 1969 2 WLR 163 1969 1 AER 208

KILLEEN v DPP & ORS 1997 3 IR 218 1998 1 ILRM 1 1998/23/8845

IRISH HARDWARE ASSOCIATION v SOUTH DUBLIN CO COUNCIL UNREP BUTLER 19.7.2000 2000/11/4196

KENNY, STATE & HUSSEY v BORD PLEANALA & MEENAN UNREP CARROLL 23.2.1984 1984/4/1372

KENNY & HUSSEY, STATE v BORD PLEANALA & MEENAN UNREP SUPREME 20.12.1984 1984/7/2366

GREALISH v BORD PLEANALA 2006 1 ILRM 140 2005/28/5760 2005 IEHC 24

GREEN DALE BUILDING CO LTD, IN RE 1977 IR 256

ASHBOURNE HOLDINGS LTD v BORD PLEANALA & CORK CO COUNCIL 2003 2 IR 114 2003 2 ILRM 446 2003/3/564

MULCREEVY v MIN FOR ENVIRONMENT & DUN LAOGHAIRE-RATHDOWN CO COUNCIL 2004 1 IR 72 2004 1 ILRM 419 2004/31/7353 2004 IESC 5

MCNAMARA v BORD PLEANALA (NO 1) 1995 2 ILRM 125

HARDING v CORK CO COUNCIL & BORD PLEANALA 2008 4 IR 318

PLANNING & DEVELOPMENT ACT 2000 S50

PLANNING & DEVELOPMENT ACT 2000 S50A

PLANNING & DEVELOPMENT (STRATEGIC INFRASTRUCTURE) ACT 2006 S13

ART 26 OF THE CONSTITUTION & S5 & S10 OF ILLEGAL IMMIGRANTS (TRAFFICKING) BILL 1999, IN RE 2000 2 IR 360 2000/11/4122

KENNY v BORD PLEANALA (NO 1) 2001 1 IR 565 2000/11/4343

O'BRIEN v DUN LAOGHAIRE-RATHDOWN CO COUNCIL UNREP O'NEILL 1.6.2006 2006/44/9478 2006 IEHC 177

PLANNING & DEVELOPMENT (STRATEGIC INFRASTRUCTURE) ACT 2006 S21

PLANNING & DEVELOPMENT ACT 2000 S38

LOCAL GOVT (PLANNING & DEVELOPMENT) ACT 1976 S42

LOCAL GOVT (PLANNING & DEVELOPMENT) ACT 1963 S82(3A)

LOCAL GOVT (PLANNING & DEVELOPMENT) ACT 1992 S19(3)

WHITE v DUBLIN CITY COUNCIL & ORS 2004 1 IR 545 2004 2 ILRM 509 2004/50/11423 2004 IESC 35

PLANNING & DEVELOPMENT ACT 2000 S265(1)

KSK ENTERPRISES LTD v BORD PLEANALA & ORS 1994 2 IR 128 1994 2 ILRM 1 1994/4/1176

SQUARE MEALS FROZEN FOODS LTD v DUNSTABLE CORP 1974 1 WLR 59 1974 1 AER 441

TOWN & COUNTRY PLANNING ACT 1971 (UK)

O'KEEFFE v BORD PLEANALA & O'BRIEN 1993 1 IR 39 1992 ILRM 237

CUSSEN, STATE v BRENNAN & ORS 1981 IR 181 1980/1/107

PLANNING & DEVELOPMENT ACT 2000 S50A(3)

PLANNING & DEVELOPMENT ACT 2000 S50A(4)

HARDING v CORK CO COUNCIL & BORD PLEANALA UNREP CLARKE 12.10.2006 2006/28/5912 2006 IEHC 295

PLANNING & DEVELOPMENT REGS 2001 SI 600/2001 REG 29

HARRINGTON v BORD PLEANALA & ORS 2006 1 IR 388 2005/29/5917 2005 IEHC 344

CUMANN THOMAS DAIBHIS v SOUTH DUBLIN CO COUNCIL UNREP O'NEILL 30.3.2007 2007/13/2621 2007 IEHC 118

LANCEFORT LTD v BORD PLEANALA & ORS (NO 2) 1999 2 IR 270 1998 2 ILRM 401 1998/23/8916

HOLLAND, STATE v KENNEDY 1977 IR 193

HARTE & ORS v LABOUR COURT 1996 2 IR 171 1996 2 ILRM 450 1996/5/1330

ANTI-DISCRIMINATION (PAY) ACT 1974

R v NORTHUMBERLAND COMPENSATION APPEAL TRIBUNAL, EX PARTE SHAW 1952 1 KB 338 1952 1 AER 122

RYAN v COMPENSATION TRIBUNAL 1997 1 ILRM 194 1997/6/2227

BANNON v EMPLOYMENT APPEALS TRIBUNAL 1993 1 IR 500 1992/10/3110

ABENGLEN PROPERTIES LTD, STATE v DUBLIN CORP 1984 IR 381 1982 ILRM 590 1982/1/1

WADE & FORSYTH ADMINISTRATIVE LAW 9ED 2004 268

DOHERTY & ORS APPLICATION, IN RE 1988 NI 14

ATHLONE WOOLLEN MILLS CO LTD v ATHLONE URBAN DISTRICT COUNCIL 1950 IR 1

1 1. This judgment is given in respect of a consolidated hearing, being both the leave application and, if successful, the substantial application in these judicial review proceedings. This case concerns a challenge to a decision of An Bord Pleanála ("the Board") to grant permission to the first notice party, Mr. Patrick Mone ("the developer"), who is the uncle of the applicant herein, to rebuild a petrol station at Tullynagrow, County Monaghan, on the County Armagh border.

Background

2 2. In April 1998, the applicant's father, Mr. Jim Mone, started a small oil business in a yard at Tullynagrow, Castelblaney, County Monaghan, on lands which he rented from his brother, Patrick Mone, the developer. The business involved the selling of agricultural and road diesel. In November 1998, Mr. Jim Mone applied for planning permission for the retention of a petrol station which he had built on the developer's lands (planning application register reference 98/818) ("application 98/818" or "the 1998 application"). In this regard he commissioned an architect to prepare plans, paid the appropriate planning fees and lodged the application in his own name.

3 3. Sometime after this and, for reasons not relevant, relations deteriorated between both brothers with the result that Mr. Jim Mone decided that he would instead build a petrol station on his own lands. In furtherance of this, he caused an application to be made on the 13 ^th October, 1999, for a new station on lands owned by him on the opposite side of the road: (planning application register reference 99/888).

4 4. Consistent with this, Mr. Mone instructed his architect to withdraw the first application, but this was not done until a letter was delivered to Monaghan County Council ("the council" or "the planning authority") on the 11 ^th February, 2000. Unfortunately however, this letter was placed incorrectly on the file relating to application 99/888. The council on the 20 ^th April, 2000, issued a notification of decision to grant permission on the 1998 application. This, of course, was not what was intended; accordingly, Mr. Jim Mone instructed Mr. Christopher Pringle, a chartered civil engineer, to do what was necessary to achieve the intended result.

5 5. Technically speaking it would appear that it was not possible to simply withdraw the application at that stage. For this reason Mr. Pringle was advised to appeal the decision to the Board; this he did by letter of the 16 ^th May, 2000. Once before the Board he could and did withdraw the application in its entirety. A decision of the Board dated the 14 ^th November, 2000, recorded that the application had been withdrawn; this was notified to Mr. Christopher Pringle, on behalf of the applicant, the developer and the council. The notification from the Board specified the statutory basis for its decision, namely s.16 of the Local Government (Planning and Development) Act 1992 ("the Act of...