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Prior to the start of the twenty-first century, laws were made for Wales by the Parliament at Westminster. Devolution, and the creation of the National Assembly, has given Wales another legislature that does not replace the UK Parliament but shares in its law-making activity regarding certain subjects. This book considers how legislation is made for Wales; its primary focus is law-making by the National Assembly and the Welsh Government, but the role of Westminster and Whitehall is also observed. The purpose of this volume is to raise a critical awareness of what is involved in sound law-making – it is intended not only for those who prepare and make legislation within the institutions of government, but equally also for the citizens whose lives are affected by that legislation, and who have an interest in the quality of the laws that govern them and the society in which they live. This is the first such work to consider these issues from a Welsh perspective.
Contents
Series Preface
Foreword
Preface
Acknowledgements
Table of Cases
Table of Assembly Measures
Table of Assembly Acts
Table of Assembly Bills
Table of United Kingdom Acts
Table of Statutory Instruments
Table of Standing Orders of the National Assembly for Wales
1. Legislation and Legislatures
2. From Ideas to Policy
3. From Policy to Proposal
4. The National Assembly for Wales: Competence and Constraints
5. People and Preparation
6. From Proposals to Provisions
7. Process and Promulgation
8. Implementation and Interpretation
9. Other Legislatures and Their Legislative Processes
Conclusion
Select Bibliography
Index
Publié par
Date de parution
01 septembre 2018
Nombre de lectures
0
EAN13
9781786833013
Langue
English
Poids de l'ouvrage
36 Mo
T H E P U B L I C L A W O F W A L E S
Legislating for Wales
T H E P U B L I C L A W O F W A L E S
Legislating for Wales
Thomas Glyn Watkin with Daniel Greenberg
UNIVERSITY OF WALES PRESS 2018
© Thomas Gyn Watkîn and Danîe Greenberg,
A rîghts reserved. No part o thîs book may be reproduced în any materîa orm (încudîng photocopyîng or storîng ît în any medîum by eectronîc means and whether or not transîenty or încîdentay to some other use o thîs pubîcatîon) wîthout the wrîtten permîssîon o the copyrîght owner. Appîcatîons or the copyrîght owner’s wrîtten permîssîon to reproduce any part o thîs pubîcatîon shoud be addressed to the Unîversîty o Waes Press, Unîversîty Regîstry, Kîng Edward VII Avenue, Cardî CF NS.
The content o thîs pubîcatîon does not constîtute ega or other proessîona advîce, and shoud not be reîed upon as such. Whîe every reasonabe eort has been made to ensure that the content îs accurate and up to date, any reîance on the content îs soey at the user’s own rîsk.
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Typeset by Marîe Doherty Prînted by CPI Antony Rowe, Meksham
Series Preface
or severa centurîes ater the unîon o the two countrîes under the Tudors, the F aws whîch appîed în Engand and the aws whîch appîed în Waes were amost exacty îdentîca. Athough admînîstered dîferenty în Waes by the courts o Great Sessîon, the aws were not dîferent. Ony în the nîneteenth century, barey ha a century ater the aboîtîon o the Great Sessîons în 1830, dîd aws begîn to be made or Waes whîch dîd not appy în neîghbourîng Engand. The number o such aws however remaîned sma when compared wîth those whîch were common to both countrîes. Engand and Waes was a sînge aw dîstrîct wîth a sînge aw – the aw o Engand and Waes, whîch was în reaîty Engîsh aw. Devoutîon has changed that sîtuatîon sîgnîficanty. The creatîon o the Natîona Assemby or Waes and îts subsequent acquîsîtîon o prîmary aw-makîng powers has meant that there îs now a growîng number o dîferences between the aws whîch appy în Waes and those whîch appy în Engand. Athough în the majorîty o cases, the aws o the two countrîes remaîn the same, there îs an încreasîng dîver-gence în the rues reatîng to those matters whîch have been devoved. In truth, there are now three bodîes o aw în Engand and Waes: one whîch appîes onyîn Waes; a second whîch appîes ony în Engand, and a thîrd whîch appîes în both countrîes. Whenever the Natîona Assemby egîsates or Waes or the Unîted Kîngdom Parîament egîsates ony or Engand, the dîvergence încreases. As that dîvergence încreases, so does the împortance that awyers, aw students and the pubîc shoud be abe to înorm themseves o what the aw îs în Waes. Peope need to know the aws whîch govern theîr îves rom the perspectîve o the socîety în whîch they îve. In both countrîes, awyers need to know what the aw îs on eîther sîde o the border. The temptatîon has been to present the aw whîch appîes în Waes în terms o the aw whîch appîes în Engand, whîe merey notîng the dîferences. As dîvergence încreases, that approach becomes not merey unhepu rom a Wesh perspectîve, but unacceptabe. The purpose o thîs serîes thereore îs to present to the proessîons and to the pubîc an account o the aw as ît appîes în Waes în the areas where there îs now dîvergence, and în so doîng to both redress the deficît and provîde the oundatîon or a ega îterature to serve the dîstînct needs o Waes.
Thomas Gyn Watkîn
Contents
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Serîes Preace. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . v Foreword . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xî Preace . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xîîî Acknowedgements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xvîî
Tabe o Cases . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xîx Assemby Standîng Orders . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xx Tabe o Assemby Measures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xx Tabe o Assemby Acts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xx Tabe o Assemby Bîs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xxî Tabe o Unîted Kîngdom Acts. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xxîî Tabe o Statutory Instruments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xxv
Legislation and Legislatures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 Legîsatîon: the word and îts meanîng . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 Impîcatîons o these meanîngs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 The phases o egîsatîon as an actîvîty . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 Termînoogy. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 The egîsatîve înîtîatîve . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 The authorîty to enact: deîberatîon and decîsîon-makîng. . . . . . . . . . . . . . . . . . . 9 The executîve branch o government . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14 The government o the Unîted Kîngdom . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15 The hîstory o Wesh devoutîon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18 The Wesh Government and the Wesh Mînîsters . . . . . . . . . . . . . . . . . . . . . . . . . . . 25 The Cîvî Servîce and the Assemby Commîssîon. . . . . . . . . . . . . . . . . . . . . . . . . . . 28 The chaenge o egîsatîng or Waes. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
From Ideas to Policy. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31 Legîsatîon, government and the rue o aw. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31 The need or egîsatîon. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32 Ideas or egîsatîon. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33 Propery thought through poîcy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39 Poîcy: the word, îts meanîng and the împîcatîons. . . . . . . . . . . . . . . . . . . . . . . . . . 40 The actîon and îts consequences . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40 Eicacy and împact . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42 Answerîng the questîons: evîdence and anaysîs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45 The case or change . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46
viiiPublic Law of Wales The
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Generatîng optîons. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48 The preerred optîon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48
From Policy to Proposal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51 The changes to the aw that can be made. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51 Freedom and egîsatîon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 52 Freedom or îberty as the deaut posîtîon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53 The prîncîpe o proportîonaîty . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54 Lega dutîes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 60 Enorcîng ega dutîes and caîm rîghts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 60 Methods o enorcement. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 62 Fundamenta ega concepts: the statîc set. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 62 The concept o a ega power. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 64 Fundamenta ega concepts: the dynamîc set . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 65 Cassîficatîons o egîsatîon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 67 Choîces o egîsature and o kînds o egîsatîon . . . . . . . . . . . . . . . . . . . . . . . . . . . . 70
The National Assembly for Wales: Competence and Constraints . 79 Terrîtorîa îmîtatîons . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 79 Subject-matter competence . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 81 Enorcement. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 94 Incîdenta and consequentîa provîsîons . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 97 Genera restrîctîons . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 100 Extent. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 107 Compatîbîîty wîth EU aw and human rîghts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 108 Chaenges to egîsatîve competence . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 109 Secretary o State înterventîon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 112
People and Preparation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 115 The bî team: îts composîtîon and unctîons . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 115 Persons wîth an înterest în egîsatîon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 122 Preparatîon o înstructîons . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 125 The structure o a egîsatîve proposa . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 130 Respondîng constructîvey to drats. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 131 The content o a egîsatîve provîsîon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 134
From Proposals to Provisions. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 135 Long tîte and short tîte . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 135 The bî’s provîsîons . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 136 Enorcement and împementatîon. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 144 Mutî-purpose egîsatîon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 149 Overvîew provîsîons . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 152 Purpose provîsîons . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 153 Interpretatîon. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 155
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Provîsîons amendîng other egîsatîon. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 160 Transîtîona and savîng provîsîons . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 164 Commencement or comîng înto orce. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 165 Extent. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 167
Process and Promulgation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 169 The întroductory phase . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 169 The deîberatîve phase . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 174 The decîsîon-makîng phase . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 186 Specîa procedures. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 191
Implementation and Interpretation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 197 Commencement or comîng înto orce. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 197 Subordînate egîsatîon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 198 Judîcîa înterpretatîon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 208
Other Legislatures and Their Legislative Processes . . . . . . . . . . . . . . . 223 Legîsatîve process în the Westmînster Parîament . . . . . . . . . . . . . . . . . . . . . . . . . . 223 European Unîon egîsatîon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 232
Aterword. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 239 Seect Bîbîography . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 245 Index . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 247
