Miller, The Prerogative and Constitutional Change

Pages448-454
Author
Published date01 September 2017
Date01 September 2017
DOI10.3366/elr.2017.0443
INTRODUCTION

The Supreme Court's decision in R (Miller) v Secretary of State for Exiting the European Union 1 was a significant one in many respects covering much constitutional ground on prerogative powers, the effects of European Union (“EU”) membership on the UK constitution, the relationship between the UK parliament and the devolved administrations, referendums in the UK and more besides. This contribution will focus on one of the two main issues in the judgment; that of the scope of prerogative powers under the constitution, and in particular, their relationship to statute (the other main issue being the devolution questions).2

It will provide a brief summary of the relevant rules regulating the prerogative considered in the case along with how they were applied by the UK Supreme Court (“UKSC”), arguing that the contorted logic of the majority in the case in applying the Common Law rules regulating the exercise of the prerogative is evidence that they were not the real grounds upon which the case was decided. Rather, the key reason for the majority finding that the government lacked the constitutional authority to give notification under article 50 (“article 50”) of the Treaty on European Union (“TEU”)3 in the absence of statutory authorisation was a newly-minted principle that major constitutional change requires legislation, based on the unique circumstances surrounding the reception and effect of EU law on the UK constitution.

THE RULES REGARDING THE PREROGATIVE

Prerogative powers are executive powers which do not owe their origin to legislation or the Common Law but are a legacy of the original powers of the monarch under medieval constitutional arrangements. Although they are commonly criticised for their seemingly undemocratic nature, the most important powers are now exercised by the government. The particular prerogative at issue in Miller was the power to conduct foreign relations, in particular the power to sign treaties which, the UKSC found, also implied a power to withdraw from or terminate treaties.4 Generally speaking such a power is exercisable without reference to legislation (because of the UK constitution's dualist approach to international law) and is not judicially reviewable.5

However, as with any prerogative power, the power to sign and withdraw from treaties could be affected both by statute and by Common Law rules. At issue in Miller was whether this power had been affected by EU-related legislation passed during the UK's EU membership and in particular the Act which gave effect to that membership in the first place – the European Communities Act 1972. In order to determine that issue, the court had to apply the standard Common Law rules regulating the relationship between prerogative powers and statutes, namely that:

Prerogative powers cannot be used to change the law;

Prerogative powers can be curtailed or restricted by statute; and

Prerogative powers cannot be used to circumvent or frustrate the purposes of a statute.

Prerogative powers cannot be exercised to alter the law

The idea that prerogative powers cannot be used to change the law dates back at least to the Case of Proclamations of 1610.6 The precise question at issue in Miller was whether the exercise of the prerogative of signing/withdrawing from treaties to give notification under article 50 could be said to be changing the law in the relevant sense of the rule. There are two elements to this question, one practical, the other relating to what counts as “law” for the purposes of the rule.

The practical question concerns whether triggering article 50 in fact changes domestic law.7 On one reading, triggering article 50 itself does not change, repeal or affect the continued validity and operation of, for example, the 1972 Act. It would remain in force and have full effect until it is formally repealed by the UK parliament. This was the view taken by the minority.8

The majority, by contrast, found that changes in the law which would eventually occur on the lapse of the time period in article 50 could be imputed to the exercise of the prerogative to effect notification of withdrawal under article 50. They endorsed a metaphor employed by the applicants likening the triggering of article 50 to a bullet leaving a gun which will sooner or later hit a target. In other words, triggering article 50 will result in changes to current law as individuals will be deprived of certain EU-derived rights once the UK formally ceases to be a...

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