Administrative law is the legal growth industry of the i98os. Almost every week the courts deliver judgments on complaints by individuals against some branch of government or adjudicate disputes between public authorities, central and local, metropolitan and district. In the course of this activity new concepts have been developed, such as 'fairness' and 'legitimate expectations', which in their turn are used to push back the frontiers of judicial review. Yet perhaps a little curiously this phenomenon is treated with some reserve by many commentators. Attention is rightly drawn to the alternative avenues for redress open to aggrieved citizens: complaint to Ombudsmen (Parliamentary, Health Service or Local), appeal to tribunals, appearance at planning inquiries, or employment of the numerous complaints procedures, formal and informal, set up by the public authorities themselves or by watch-dog councils and complaints authorities. The courts have, to use the fashionable word, been 'marginalized' as fora for remedying the abuse of administrative power. Administrative lawyers should, therefore, now concentrate on the variety of different procedures for controlling government and evaluate their relative effectiveness. This is the thesis of Patrick Birkinshaw's book, Grievances, Remedies and the State.' It examines the numerous forms of redress, some of which have been virtually ignored by standard works on administrative law; significantly judicial review is relegated to the final chapter. There is a great deal of valuable information in the book. The discussion of informal methods of complaint against public authorities is particularly stimulating. Birkinshaw rightly points out that these procedures may be used disproportionately by the articulate and cantankerous. Moreover, informal consultation processes will be of benefit to well-organized pressure groups and may preclude any effective participation by ordinary members of the public in the administrative process.2 (Of course, there are similar drawbacks to the most formal procedures, e.g., litigation in the courts, but it is useful to have discovered that things are little better with (at least) some alternatives.) This review, however, is primarily concerned with one or two of the genefal themes, stated in the opening chapter of Birkinshaw's book and developed at points throughout the text. The first is that administrative law, broadly understood, is concerned with both the redress of individual grievances and achieving the accountability of
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