metadata toggle
Human Rights Act 1998
 
Human Rights Act 1998
25.22Section 1 of the Human Rights Act (HRA) 1998 provides that most of the European Convention on Human Rights is to have effect in the UK:
Articles 2–12 and 14 of the ECHR;
Articles 1–3 of the First Protocol; and
Articles 1 and 2 of the Sixth Protocol.
25.23Provision is made for the UK to enter reservations or derogations, but none such exist at the present time.
The main ECHR provisions
25.24The ECHR provisions relied on in social care cases are as follows:
Right to life
Article 2
1. Everyone’s right to life shall be protected by law. No one shall be deprived of his life intentionally save in the execution of a sentence of a court following his conviction of a crime for which this penalty is provided by law.
2. Deprivation of life shall not be regarded as inflicted in contravention of this Article when it results from the use of force which is no more than absolutely necessary:
(a) in defence of any person from unlawful violence;(b) in order to effect a lawful arrest or to prevent the escape of a person lawfully detained;(c) in action lawfully taken for the purpose of quelling a riot or insurrection.
Prohibition of torture
Article 3
No one shall be subjected to torture or to inhuman or degrading treatment or punishment.
Right to liberty and security
Article 5
1. Everyone has the right to liberty and security of person. No one shall be deprived of his liberty save in the following cases and in accordance with a procedure prescribed by law:
(a) the lawful detention of a person after conviction by a competent court;(b) the lawful arrest or detention of a person for non-compliance with the lawful order of a court or in order to secure the fulfilment of any obligation prescribed by law;(c) the lawful arrest or detention of a person effected for the purpose of bringing him before the competent legal authority on reasonable suspicion of having committed an offence or when it is reasonably considered necessary to prevent his committing an offence or fleeing after having done so;(d) the detention of a minor by lawful order for the purpose of educational supervision or his lawful detention for the purpose of bringing him before the competent legal authority;(e) the lawful detention of persons for the prevention of the spreading of infectious diseases, of persons of unsound mind, alcoholics or drug addicts or vagrants;(f) the lawful arrest or detention of a person to prevent his effecting an unauthorised entry into the country or of a person against whom action is being taken with a view to deportation or extradition.
2. Everyone who is arrested shall be informed promptly, in a language which he understands, of the reasons for his arrest and of any charge against him.
3. Everyone arrested or detained in accordance with the provisions of paragraph 1(c) of this Article shall be brought promptly before a judge or other officer authorised by law to exercise judicial power and shall be entitled to trial within a reasonable time or to release pending trial. Release may be conditioned by guarantees to appear for trial.
4. Everyone who is deprived of his liberty by arrest or detention shall be entitled to take proceedings by which the lawfulness of his detention shall be decided speedily by a court and his release ordered if the detention is not lawful.
5. Everyone who has been the victim of arrest or detention in contravention of the provisions of this Article shall have an enforceable right to compensation.
Right to a fair trial
Article 6
1. In the determination of his civil rights and obligations or of any criminal charge against him, everyone is entitled to a fair and public hearing within a reasonable time by an independent and impartial tribunal established by law. Judgment shall be pronounced publicly but the press and public may be excluded from all or part of the trial in the interest of morals, public order or national security in a democratic society, where the interests of juveniles or the protection of the private life of the parties so require, or to the extent strictly necessary in the opinion of the court in special circumstances where publicity would prejudice the interests of justice.
2. Everyone charged with a criminal offence shall be presumed innocent until proved guilty according to law.
3. Everyone charged with a criminal offence has the following minimum rights:
(a) to be informed promptly, in a language which he understands and in detail, of the nature and cause of the accusation against him;(b) to have adequate time and facilities for the preparation of his defence;(c) to defend himself in person or through legal assistance of his own choosing or, if he has not sufficient means to pay for legal assistance, to be given it free when the interests of justice so require;(d) to examine or have examined witnesses against him and to obtain the attendance and examination of witnesses on his behalf under the same conditions as witnesses against him;(e) to have the free assistance of an interpreter if he cannot understand or speak the language used in court.
Right to respect for private and family life
Article 8
1. Everyone has the right to respect for his private and family life, his home and his correspondence.
2. There shall be no interference by a public authority with the exercise of this right except such as is in accordance with the law and is necessary in a democratic society in the interests of national security, public safety or the economic well-being of the country, for the prevention of disorder or crime, for the protection of health or morals, or for the protection of the rights and freedoms of others.
Public authorities and unlawful acts
25.25The principle mechanism whereby the Human Rights Act 1998 gives effect to the ECHR rights that now take effect in UK law (from now on, ‘ECHR rights’) is in sections 6–8, by virtue of which:
it is unlawful for a ‘public authority’ to act, or to fail to act, in a way which is incompatible with ECHR rights unless the ‘public authority’ could not have acted differently as a result of primary legislation/provisions made under primary legislation that cannot be read or given effect in a way that is compatible with ECHR rights;
a ‘public authority’ includes a court or tribunal and any person certain of whose functions are of a public nature except in relation to their actions or failures to act that are private in nature;
a person who is, or would be, a victim of an unlawful act under section 6 can bring proceedings against the ‘public authority’ in an appropriate court or tribunal, in reliance on their ECHR rights, within one year (or longer, if the court grants an extension);
if the court or tribunal decides that the ‘public authority’ has acted, or proposes to act, incompatibly with the claimant’s ECHR rights, it may grant any form of remedy that falls within its usual powers and that it considers appropriate, including damages where damages are necessary to accord the victim ‘just satisfaction’.
25.26As discussed in chapter 15 ‘Status of care home and care providers’, the courts tended to the view that care home and home care operators, providing services under contract with local authorities, were exercising any functions of a public nature so as to make the operators liable under the Human Rights Act 1998. However, Parliament has now stepped in to reverse that. Section 73 of the Care Act 2014 provides that a person is to be taken as exercising a function of a public nature, for the purposes of section 6(3)(b) of the Human Rights Act 1998 in providing care or supportif:
the care or support is arranged by an English local authority, or paid for (directly or indirectly, in whole or in part); if that is done
under sections 2, 18, 19, 20, 38 or 48 of the Care Act 2014; and
the care provider is registered and provides care and support to an adult in the course of providing personal care in the place where the adult is residing, or residential accommodation together with nursing or personal care.
25.27Similar provision is made in respect of Wales, Scotland and Northern Ireland in section 73(1)(b)–(d).
25.28In addition:
private hospitals discharging functions under the Mental Health Act 1983 are ‘public authorities’ for these purposes: R (A) v Partnerships in Care Limited;1[2002] EWHC 529 (Admin), (2002) 5 CCLR 330.and
registered social landlords are discharging a public function for the purposes of the Human Rights Act 1998 when they manage their social housing stock and may also be amenable to judicial review in such cases, including when they are, at the same time, providing a form of social care: R (Weaver) v London and Quadrant Housing Trust.2[2009] EWCA Civ 587, [2010] 1 WLR 363.
Positive obligations
25.29A recurrent issue in social and health care cases is the extent to which the ECHR, in particular Article 8 ECHR, imposes a positive duty to provide a social or health care service.
25.30Article 8 ECHR confers on persons a ‘right to respect’ for their existing private and family lives and their home and protects persons from any unnecessary and unjustified State ‘interference’ in these areas. Thus, it is said, Article 8 ECHR contains a ‘negative obligation’ or ‘prohibition’ and aims at preventing interference by the State: the knock on the door at night, for example.
25.31The primary focus of Article 8 ECHR is, indeed, negative in this sense but it has been clear since the earliest case-law of the ECtHR that ‘Article 8 does not merely compel the state to abstain from interference. In addition to this, there may be positive obligations inherent in any effective respect for private and family life even in the sphere of the relations of individuals between themselves’.3Marckz v Belgium (1979) 2 EHRR 330 at para 31.
25.32In the final analysis, whether Article 8 imposes a positive obligation to provide a service, and whether Article 8 prevents state interference, both depend on the ‘fair balance’ that has to be struck between the competing interests of the individual and the community.4R (Quila) v Secretary of State for the Home Department [2011] UKSC 45, [2012] 1 AC 621 at para 69.
25.33It often seems relatively easy for a court to determine whether State interference strikes a fair balance between the competing interests of the individual and society, in the light of the test in Article 8, which requires that any interference is ‘necessary in a democratic society in the interests of national security, public safety or the economic well-being of the country, for the prevention of disorder or crime, for the protection of health or morals, or for the protection of the rights and freedoms of other’.
25.34It often seems much harder for a court to determine, with confidence, that a State failure to take positive action fails to strike a fair balance between the individual and the community. The case-law reveals (i) relevant factors, (ii) the types of case that have succeeded.
25.35Relevant factors are: (i) the extent to which ‘fundamental values’ and ‘essential aspects of private life’5X & Y v Netherlands (1985) 8 EHRR 235 at para 27.or a ‘vital interest’6Gaskin v United Kingdom (1989) 12 EHRR 36 at para 42.protected by the ECHR are in issue; (ii) the degree of harm that the individual will suffer unless positively assisted;7Stjerna v Finland (1994) 24 EHRR 194 at para 42.(iii) the breadth and clarity of the positive obligation sought to be imposed;8Botta v Italy (1998) 26 EHRR 241 at para 35.(iv) the extent of consensus on the issue amongst Council of Europe State or internationally;9Goodwin v United Kingdom (2002) 35 EHRR 18 at paras 84–85.(v) the extent to which imposing a positive obligation would require the State to change the way in which it allocates scarce financial resources or, otherwise, impinge on matters of political, social or economic policy judgment.10Pentiacova v Moldova (2005) 40 EHRR SE23.
25.36Consequently, a State may well be under a positive obligation to take relatively inexpensive steps where fundamental interests are at stake, such as (i) officially to recognise a person’s changed gender11Goodwin v United Kingdom (2002) 35 EHRR 53.or choice of name;12Bulgakov v Ukraine (59894/00, 11 September 2007) at para 43.(ii) to determine paternity;13Znamenskaya v Russia (2007) 44 EHRR 15.and to (iii) to provide access to vital personal information.14Gaskin v United Kingdom (1989) 12 EHRR 36.In general, however, something very special is needed, and the ECHR will not generally require the State to make positive provision of housing,15Marzari v Italy (2000) 30 EHRR CD.disabled facilities16Botta v Italy (1998) 26 EHRR 241.or healthcare.17Pentiacova v Moldova (2005) 40 EHRR SE23.
25.37It has been suggested that it is more likely that positive provision will be required where such is necessary to preserve family life involving children or to ameliorate suffering so severe as to be comparable with inhuman and degrading treatment;18R (Anufrijeva) v Southwark LBC [2003] EWHC Civ 1406, (2003) 6 CCLR 415.and a discriminatory failure to make positive provision seems well within the scope of ECHR redress.19van Kuck v Germany (2005) 8 CCLR 121.
25.38Article 8 ECHR may require a public authority to provide services where a failure to do so fails to strike a proportionate balance between the public and private interests at stake and where, otherwise:
an individual, especially a vulnerable individual, will experience damage to their private life so serious as to be at or around the inhuman or degrading level;20R (Anufrijeva) v Southwark LBC [2003] EWCA Civ 1406, (2003) 6 CCLR 415.
the health or welfare of a child will be very seriously damaged;21R (Anufrijeva) v Southwark LBC [2003] EWCA Civ 1406, (2003) 6 CCLR 415.
there will be very serious damage to family life, especially if it involves humiliating or very distressing episodes;22R (Bernard) v Enfield LBC [2002] EWHC 2282 (Admin), (2002) 5 CCLR 577.
an individual, or family, will be required to leave the UK before proper consideration has been given to their application for leave to remain on ECHR grounds, providing that the application is not manifestly abusive.23R (Clue) v Birmingham CC [2010] EWCA Civ 460, (2010) 13 CCLR 276.
25.39Article 3 ECHR will require public authorities to provide services in the following circumstances:
a public authority is under an absolute duty to provide services so far as necessary to alleviate inhuman or degrading suffering caused by its own treatment of the individual, whether that treatment is obvious and direct (eg sentencing a disabled person to prison when conditions at the prison turn out to be grossly unsuitable24Price v United Kingdom (2002) 35 EHRR CD 316, (2002) 5 CCLR 306.) or less obvious but in substance still direct (eg excluding an asylum-seeker from support whilst also barring them from mainstream benefits and employment25R (Limbuela) v Secretary of State for the Home Department [2005] UKHL 66, [2006] 1 AC 396, (2006) 9 CCLR 30.);
a public authority is under a duty to take reasonable steps to prevent the inhuman or degrading treatment of individuals, in particular vulnerable individuals, that it knows about, or ought reasonably to know about (eg abuse perpetrated on children or vulnerable adults by their carers);26E v Chief Constable of the Royal Ulster Constabulary [2008] UKHL 66, [2009] 1 AC 536.
a public authority may sometimes be under a positive duty to alleviate inhuman or degrading suffering, whatever the cause, for example, where the individual concerned is especially vulnerable and/or where the public authority is already under an obligation in national law to take positive steps.27R (Anufrijeva) v Southwark LBC [2003] EWCA Civ 1406, (2003) 6 CCLR 415.
25.40In addition, Articles 3 and 8 ECHR require that laws, procedures and decisions relating to the provision of medical and social care are (i) published; (ii) reasonably clear and functional; and (iii) manifest an understanding of and due regard for the issues at stake for the individual.28Tysiac v Poland (2007) 45 EHRR 42.
The application of ECHR law
25.41Sections 2–4 of the Human Rights Act 1998 regulate the ways in which ECHR law meshes with existing national law and court procedures.
Section 2
25.42By virtue of section 2, courts and tribunals ‘must take into account’ judgments of the European Court of Human Rights (and other specified material) when determining questions that have arisen in connection with ECHR rights. This means that:
a UK court will usually apply principles that are clearly established in the European Court of Human Rights;
where a UK court considers that, exceptionally, the European Court of Human Rights may not have adequately taken into account important features of the national scene, it may decline to follow decisions of the European Court of Human Rights, on the basis that this will enable the European Court of Human Rights to reconsider the position (‘judicial dialogue’);
however, once an issue has been considered by the Grand Chamber of the European Court of Human Rights, in particular if that has occurred on more than one occasion, there would have to be some truly fundamental affront to the principles of UK law or some most egregious oversight or misunderstanding before a UK court could contemplate an outright refusal to follow Strasbourg authority (R (Chester) v Secretary of State for Justice29[2013] UKSC 63, [2014] AC 271.);
a lower court should not overrule a higher court in the light of new authority from the European Court of Human Rights, but grant permission to appeal to enable the higher court to consider the matter: Kay v Lambeth LBC.30[2006] UKHL 10, [2006] 2 AC 465.
Section 3
25.43In addition, by virtue of section 3, ‘so far as it is possible to do so, primary and subordinate legislation must be read and given effect to in a way which is compatible with the Convention rights’. This accords courts and tribunals a far reaching responsibility:31Ghaidan v Godin-Mendoza [2004] UKHL 30, [2004] 2 AC 557.
30. From this it follows that the interpretative obligation decreed by section 3 is of an unusual and far-reaching character. Section 3 may require a court to depart from the unambiguous meaning the legislation would otherwise bear. In the ordinary course the interpretation of legislation involves seeking the intention reasonably to be attributed to Parliament in using the language in question. Section 3 may require the court to depart from this legislative intention, that is, depart from the intention of the Parliament which enacted the legislation. The question of difficulty is how far, and in what circumstances, section 3 requires a court to depart from the intention of the enacting Parliament. The answer to this question depends upon the intention reasonably to be attributed to Parliament in enacting section 3.
31. On this the first point to be considered is how far, when enacting section 3, Parliament intended that the actual language of a statute, as distinct from the concept expressed in that language, should be determinative. Since section 3 relates to the ‘interpretation’ of legislation, it is natural to focus attention initially on the language used in the legislative provision being considered. But once it is accepted that section 3 may require legislation to bear a meaning which departs from the unambiguous meaning the legislation would otherwise bear, it becomes impossible to suppose Parliament intended that the operation of section 3 should depend critically upon the particular form of words adopted by the parliamentary draftsman in the statutory provision under consideration. That would make the application of section 3 something of a semantic lottery. If the draftsman chose to express the concept being enacted in one form of words, section 3 would be available to achieve Convention-compliance. If he chose a different form of words, section 3 would be impotent.
32. From this the conclusion which seems inescapable is that the mere fact the language under consideration is inconsistent with a Convention-compliant meaning does not of itself make a Convention-compliant interpretation under section 3 impossible. Section 3 enables language to be interpreted restrictively or expansively. But section 3 goes further than this. It is also apt to require a court to read in words which change the meaning of the enacted legislation, so as to make it Convention-compliant. In other words, the intention of Parliament in enacting section 3 was that, to an extent bounded only by what is ‘possible’, a court can modify the meaning, and hence the effect, of primary and secondary legislation.
33. Parliament, however, cannot have intended that in the discharge of this extended interpretative function the courts should adopt a meaning inconsistent with a fundamental feature of legislation. That would be to cross the constitutional boundary section 3 seeks to demarcate and preserve. Parliament has retained the right to enact legislation in terms which are not Convention-compliant. The meaning imported by application of section 3 must be compatible with the underlying thrust of the legislation being construed. Words implied must, in the phrase of my noble and learned friend, Lord Rodger of Earlsferry, ‘go with the grain of the legislation’. Nor can Parliament have intended that section 3 should require courts to make decisions for which they are not equipped. There may be several ways of making a provision Convention-compliant, and the choice may involve issues calling for legislative deliberation.
34. Both these features were present in In re S (Minors) (Care Order: Implementation of Care Plan) [2002] 2 AC 291. There the proposed ‘starring system’ was inconsistent in an important respect with the scheme of the Children Act 1989, and the proposed system had far-reaching practical ramifications for local authorities. Again, in R (Anderson) v Secretary of State for the Home Department [2003] 1 AC 837 section 29 of the Crime (Sentences) Act 1997 could not be read in a Convention-compliant way without giving the section a meaning inconsistent with an important feature expressed clearly in the legislation. In Bellinger v Bellinger (Lord Chancellor intervening) [2003] 2 AC 467 recognition of Mrs Bellinger as female for the purposes of section 11(c) of the Matrimonial Causes Act 1973 would have had exceedingly wide ramifications, raising issues ill-suited for determination by the courts or court procedures.
Section 4
25.44Finally, by virtue of section 4, where primary legislation simply cannot be construed compatibly with ECHR rights, and an individual has suffered a breach of their ECHR rights,32Secretary of State for Defence v Nicholas [2015] EWCA Civ 53, [2015] 1 WLR 2116 at paras 17–24.as a last resort, the High Court and above may make a ‘declaration of incompatibility’, which allows a Minister of the Crown to amend the legislation (section 10):
this leaves Parliament free to examine the situation and determine the best means of resolving the incompatibility33R (Hooper) v Secretary of State for Work and Pensions [2003] EWCA Civ 813, [2003] 1 WLR 2623 at para [78]; R (M) v Secretary of State for Health [2003] EWHC 1094 (Admin) at para 18. ; however,
it does not impose a legal obligation on the Secretary of State to introduce remedial or amending legislation, or any obligation on Parliament;34Ibid.and
meanwhile, the incompatible legislation continues in effect;35Ibid.so that
alternative legal routes have to be considered if the individual concerned is to secure action that respects their ECHR rights. Often, there will be no alternative legal route. Where there is, it cannot be used simply to circumvent the incompatible legislation but it could be used to provide the individual with a benefit where they qualify under it.36See chapter 17, ‘Local authority general powers’ and, in particular, R (Morris) v Westminster CC [2005] EWCA Civ 1184, [2006] 1 WLR 505.
 
1     [2002] EWHC 529 (Admin), (2002) 5 CCLR 330. »
2     [2009] EWCA Civ 587, [2010] 1 WLR 363. »
3     Marckz v Belgium (1979) 2 EHRR 330 at para 31. »
4     R (Quila) v Secretary of State for the Home Department [2011] UKSC 45, [2012] 1 AC 621 at para 69. »
5     X & Y v Netherlands (1985) 8 EHRR 235 at para 27. »
6     Gaskin v United Kingdom (1989) 12 EHRR 36 at para 42. »
7     Stjerna v Finland (1994) 24 EHRR 194 at para 42. »
8     Botta v Italy (1998) 26 EHRR 241 at para 35. »
9     Goodwin v United Kingdom (2002) 35 EHRR 18 at paras 84–85. »
10     Pentiacova v Moldova (2005) 40 EHRR SE23. »
11     Goodwin v United Kingdom (2002) 35 EHRR 53. »
12     Bulgakov v Ukraine (59894/00, 11 September 2007) at para 43. »
13     Znamenskaya v Russia (2007) 44 EHRR 15. »
14     Gaskin v United Kingdom (1989) 12 EHRR 36. »
15     Marzari v Italy (2000) 30 EHRR CD. »
16     Botta v Italy (1998) 26 EHRR 241. »
17     Pentiacova v Moldova (2005) 40 EHRR SE23. »
18     R (Anufrijeva) v Southwark LBC [2003] EWHC Civ 1406, (2003) 6 CCLR 415. »
19     van Kuck v Germany (2005) 8 CCLR 121. »
20     R (Anufrijeva) v Southwark LBC [2003] EWCA Civ 1406, (2003) 6 CCLR 415. »
21     R (Anufrijeva) v Southwark LBC [2003] EWCA Civ 1406, (2003) 6 CCLR 415. »
22     R (Bernard) v Enfield LBC [2002] EWHC 2282 (Admin), (2002) 5 CCLR 577. »
23     R (Clue) v Birmingham CC [2010] EWCA Civ 460, (2010) 13 CCLR 276. »
24     Price v United Kingdom (2002) 35 EHRR CD 316, (2002) 5 CCLR 306. »
25     R (Limbuela) v Secretary of State for the Home Department [2005] UKHL 66, [2006] 1 AC 396, (2006) 9 CCLR 30. »
26     E v Chief Constable of the Royal Ulster Constabulary [2008] UKHL 66, [2009] 1 AC 536. »
27     R (Anufrijeva) v Southwark LBC [2003] EWCA Civ 1406, (2003) 6 CCLR 415. »
28     Tysiac v Poland (2007) 45 EHRR 42. »
29     [2013] UKSC 63, [2014] AC 271. »
30     [2006] UKHL 10, [2006] 2 AC 465. »
31     Ghaidan v Godin-Mendoza [2004] UKHL 30, [2004] 2 AC 557. »
32     Secretary of State for Defence v Nicholas [2015] EWCA Civ 53, [2015] 1 WLR 2116 at paras 17–24. »
33     R (Hooper) v Secretary of State for Work and Pensions [2003] EWCA Civ 813, [2003] 1 WLR 2623 at para [78]; R (M) v Secretary of State for Health [2003] EWHC 1094 (Admin) at para 18.  »
34     Ibid. »
35     Ibid. »
36     See chapter 17, ‘Local authority general powers’ and, in particular, R (Morris) v Westminster CC [2005] EWCA Civ 1184, [2006] 1 WLR 505. »
Human Rights Act 1998
Previous Next