QUEEN'S BENCH DIVISION
ADMINISTRATIVE COURT
Strand, London, WC2A 2LL |
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B e f o r e :
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THE SECRETARY OF STATE FOR CHILDREN, SCHOOLS AND FAMILIES |
Appellant |
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BP |
Respondent |
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WordWave International Limited
A Merrill Communications Company
165 Fleet Street, London EC4A 2DY
Tel No: 020 7404 1400, Fax No: 020 7404 1424
Official Shorthand Writers to the Court)
The Respondent appeared in person
Hearing date: 1 April 2009
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Crown Copyright ©
Mr Justice Munby :
The background
The Tribunal's decision
"[34] … The Tribunal was not satisfied, on balance, that the Appellant accepted, in full measure, responsibility for his misconduct. The scheduled evidence in the bundle appeared to be various attempts by the Appellant to explain that he had pleaded guilty to two offences when, in fact, he felt he should not have. His oral evidence was inconsistent. In cross- examination he stated that he stood by his guilty pleas but then went on to state that it was not misconduct, it was misjudgment. The Appellant cannot have it both ways. The facts are that he is convicted of those offences and the Tribunal cannot go behind those convictions to revisit the facts.
[35] … Regardless of the material which he disputes was his responsibility, he has displayed an interest, particularly in young boys, which, in the view of the Tribunal goes beyond the merely professional. The fact that he has in excess of 3000 images of young children, admittedly none of them indecent, is something which sits uneasily with the Tribunal. That, coupled with the emotional congruence with children that the Appellant describes is something which indicates an inability to remain professionally detached. In fact it indicates rather the reverse. That, in addition to his convictions is something which must impact on public confidence. In CN v Secretary of State the Tribunal stated "We cannot underestimate the importance we attach to public confidence. When the Tribunal considers the question of unsuitability, it must look at the factual situation in the widest possible context."
[36] In the case of BP, he shows a lack of insight both as to what he has done and the impact on the children in question. That lack of insight is a cause for concern. He does, however, seem to accept that his internet browsing operated as a comfort mechanism and that, with the benefit of hindsight, it is neither an appropriate nor effective way of coping."
"[38] Unsuitability to work with Vulnerable Adults
The Tribunal considered that the Appellant had demonstrated an unhealthy interest in children. As stated above, that interest goes far beyond the professional. However, the Tribunal did not consider, on balance, that the Appellant is a risk to vulnerable adults or unsuitable to work with them. What evidence there is goes to his interest in children alone and the Tribunal did not consider there was reason to believe that that was likely to extend to vulnerable adults.
[39] The Tribunal acknowledged that the Appellant clearly had qualities which enabled him to be a very successful and inspirational organizer and that those qualities could easily transfer to dealing with the adult population. Indeed, his last post had demonstrated that.
[40] On balance, the Tribunal did not consider the Appellant is unsuitable to work with vulnerable adults. His name should be removed from the PoVA register forthwith."
The subsequent proceedings
" … Paragraph 38 of the decision sets out the reason for the decision. The Appellant's interest was solely directed towards children. That was a significant factor as far as the Tribunal was concerned. The fact that the Respondent does not agree with the Tribunal is not a ground for the decision to be reviewed.
… The question of the Appellant's unsuitability to work with vulnerable adults was considered as a separate issue by the Tribunal, as the law requires. It is not a foregone conclusion that, if an appellant is found to be unsuitable to work with children it must follow that he is also unsuitable to work with vulnerable adults. That is not what the law states. There will be, and have been, cases where that is the final outcome but each case must be considered separately. All the points raised in Counsel's submission to the Tribunal were considered. However, the fact that the Appellant's interest had been solely directed towards children was significant. The Tribunal concluded that, on balance, the Appellant was not unsuitable to work with vulnerable adults. This ground amounts to the fact that the Respondent disagrees with the Tribunal's decision. However, the Tribunal is entitled to reach its own conclusions from the evidence presented to it and has done so and explained the reasons for that conclusion."
The appeal
The legal framework
"[4] Thus there are three elements that the Tribunal has to consider in relation to these appeals. Firstly, there is whether or not the Appellant has been guilty of misconduct. Secondly, whether that misconduct has harmed or placed at risk of harm a child or vulnerable adult. Thirdly, whether the Appellant is unsuitable to work with children or vulnerable adults. If the Tribunal is not satisfied, on the balance of probabilities, on any of these elements, it must allow the appeal. Otherwise it must dismiss the appeal. There is no discretion.
[5] In this case the Respondent's evidence was in respect of children. As a matter of law, if the Tribunal is satisfied in respect of children, for the purposes of the PoVA listing the elements of misconduct that harmed a child or put a child at risk of harm are deemed to be proved. It is not necessary for the Respondent to prove misconduct that harmed or risked harm to a vulnerable adult. However, the question of unsuitability in respect of the PoVA listing must be considered separately."
The Tribunal's jurisprudence
"[32] Mr Moffatt submitted that there were two reasons why Mr CN was unsuitable to work with adults. He relied first of all on the report prepared by Dr Wilcox. We have already stated that we found Dr Wilcox's Report and evidence of limited value. The second reason given by Mr Moffatt is the effect that allowing the appeal would have on any service to which Mr CN might seek to apply; it would undermine confidence in any such service. Ms Sleeman submits that there is no evidence of any misconduct in relation to vulnerable adults (which of course is not relevant because of s 92(4) Care Standards Act 2000), that there is no evidence of any risk to vulnerable adults, and that the Appellant in any event has learnt his lesson, and that public confidence need not be achieved only by preventing him from pursuing his profession. It is suggested that a regulation of his work, such as the caution that has been annotated to the register for a period of one year by the Health Professions Council on 3rd February 2005, is an appropriate way in which the community can be protected.
[33] Mr CN is a speech and language therapist. It is not only children who require treatment, and those adults requiring treatment are necessarily vulnerable. We do not think that a person who remains on the PoCA list for the reasons we have set out above should be removed from the PoVA list. Society has a legitimate interest in ensuring that those who are considered unsuitable to work with children are not given positions of trust in relation to vulnerable adults. This is not to say that we consider that a vulnerable adult would be at risk of harm by Mr CN. But the Act does not require such evidence, and it is sufficient to satisfy the test in section 86(3)(b) read with section 92(4) of the Care Standards Act 2000 that he is unsuitable to work with vulnerable adults by virtue of the misconduct which placed a child at risk of harm. We agree with Mr Moffatt that the public confidence in the speech and language therapy service would be undermined if it became known that Mr CN was employed to work with vulnerable adults, given the fact that he was barred from working with children as his name was on the PoCA list. We do not wish to say that it will always inevitably follow that an appeal under section 86 will be bound to fail in the event of the appeal under s 4 of the Protection of Children Act being dismissed. Each case will be decided on its own facts, and context will be all important. In this case, however, in the sensitive area of speech and language therapy, we have formed the view that the continuation of his name on the PoCA list makes him unsuitable to work with vulnerable adults."
"We cannot underestimate the importance we attach to public confidence. When the Tribunal considers the question of unsuitability, it must look at the factual situation in the widest possible context. It … is our view that it is the clear intention of Parliament that the language of the Act requires us to take a broad view having regard to the degree of risk posed by the Appellant, but also to acknowledge that the public at large and those who entrust their children into the hands of professionals have a right to expect, indeed to demand, that such people who are placed in such important positions of trust working with children "in a child care position" are beyond reproach."
"[28] It is of course essential that those who are considered unsuitable to work with children are not given positions of trust in relation to vulnerable adults. This is not to say that we consider a vulnerable adult would be at risk of harm by MB. But the law does not require such evidence. It is sufficient to satisfy the test in s 86(3)(b) read with s 92(4) of the Care Standards Act 2000 that she is unsuitable to work with vulnerable adults by virtue of the misconduct which placed a child at risk of harm. We believe that public confidence in the provision of services to vulnerable adults would be undermined if it became known that MB was employed to work with vulnerable adults, given the fact that she was prohibited from working with children.
[29] We do not consider that it will always inevitably follow that an appeal under s 86 will be bound to fail in the event of an appeal under s 4 being dismissed. As always in this area, context will be all important. But as in the case of CN [2004] 399.PVA, [2004] EWCST 398(PC) (a speech and language therapist), we have formed the view that the continuation of her name on the PoCA list makes her unsuitable to work with vulnerable adults."
"The offences of which the Appellant stands convicted are serious and were committed in the recent past. Whether or not the Appellant has a previously unblemished record is irrelevant, given the nature of these offences. No Tribunal, properly directed, could conclude anything other than the Appellant is unsuitable to work with children and vulnerable adults. People who work with either group hold a position of considerable trust. The Tribunal agrees with the comments made in CN v Secretary of State [2004] 398.PC and [2004] 399.PVA, [2004] EWCST 398(PC) "We cannot under estimate the importance we attach to public confidence … the public at large and those who entrust their children into the hands of professionals have a right to expect, indeed to demand, that such people who are placed in such important positions of trust working with children … are beyond reproach." That argument extends also to working with vulnerable adults. In the same case it was stated that "Society has a legitimate interest in ensuring that those who are considered unsuitable to work with children are not given positions of trust in relation to vulnerable adults." Having considered all the evidence the Tribunal does not say that a vulnerable adult would be at risk of harm from the Appellant. However that is not what is required by the Act. It is sufficient that he is unsuitable to work with vulnerable adults by virtue of the fact that he harmed or placed a child at risk of harm by the offences of which he stands convicted."
The grounds of appeal
i) First, it is said that the Tribunal omitted to address why, notwithstanding its findings in relation to the nature of BP's misconduct and his unsuitability to work with children, he was nevertheless suitable to work with vulnerable adults. This, it is said, amounts to giving inadequate reasons for its decision.ii) Secondly, it is said that, given its findings as to BP's attitudinal problems, the Tribunal should not have concluded that BP was suitable to work with vulnerable adults. It is said that the Tribunal could only have reached the conclusion it did by a misapplication of the relevant law to its own findings.
i) The Tribunal's findings in relation to the PoCA list are highly relevant to the question of BP's suitability to work with vulnerable adults. Where a person lacks judgement to the degree demonstrated by BP in relation to children, this must raise concerns in relation to his contact with any vulnerable person.ii) Taken together, the Tribunal's findings show a lack of judgement on the part of BP which is inconsistent with assuming responsibility for vulnerable people. Maintaining proper boundaries in diverse situations is a key prerequisite to working with the vulnerable. Since BP lacks insight and cannot fully accept responsibility for his failings, it is not possible to be confident that he will be able to maintain proper boundaries in dealing with vulnerable adults, particularly those lacking capacity, many of whom, as Mr Ozin points out, can display child-like behaviour and mannerisms.
iii) Given the attitudinal problems which the Tribunal has found that BP has, public confidence would be undermined by BP being permitted to work with vulnerable adults.
i) On any sensible reading of the relevant paragraphs of its decision, the Tribunal gave only a single reason for its conclusion that it "did not consider, on balance, that [BP] is a risk to vulnerable adults or unsuitable to work with them," namely, as it was put in paragraph [38], that it did not consider there was reason to believe that what it called his "unhealthy interest in children" was likely to extend to vulnerable adults.ii) In expressing itself in this way the Tribunal:
a) confused the issue of whether BP was a risk to vulnerable adults – a matter which, as it had correctly directed itself in paragraph [5], it did not have to find proved – and the issue of whether BP was suitable to work with vulnerable adults;b) failed altogether even to address the question of public confidence; andc) failed to engage with, let alone to apply, its own case-law.iii) The Tribunal thus erred in law.
i) The fact that BP has an inappropriate interest in children which is not likely to extend to vulnerable adults is no more an answer to the public confidence and public trust issues raised by the other findings of the Tribunal in his case than it was in corresponding circumstances in CN. On the contrary, the passage from CN which the Tribunal quoted in its decision is, he says, just as applicable to the assessment of suitability in relation to BP's PoVA listing as to the assessment of suitability in relation to his PoCA listing, and the Tribunal erred in law in not recognising this.ii) It was not enough for the Tribunal to give a single reason for its decision – namely that BP's unhealthy interest had been directed solely towards children – when on its own case law that reason is a bad (or, at any rate, insufficient) reason for concluding that a person is not unsuitable to work with vulnerable adults.
iii) At the very least, it was incumbent upon the Tribunal to demonstrate that it had taken into account the potential, in the circumstances, for BP's PoCA listing to undermine public confidence in him in a way which had an impact on his suitability to work with vulnerable adults. It wholly failed to do so. And if its conclusion was that public confidence was not so undermined, it was incumbent upon the Tribunal to give some explanation for that conclusion. Here it gave none.
iv) Finally, and in any event, given its factual findings and its evaluation of BP's behaviour, the Tribunal's conclusion that BP was not unsuitable to work with vulnerable adults was, on its own case law, simply wrong as a matter of law.
v) None of the defects in the Tribunal's approach or reasoning were made good when it reviewed its decision. It merely reiterated the single point made in its original decision.
Discussion
"The exigencies of daily court room life are such that reasons for judgment will always be capable of having been better expressed. This is particularly true of an unreserved judgment such as the judge gave in this case but also of a reserved judgment based upon notes, such as was given by the district judge. These reasons should be read on the assumption that, unless he has demonstrated the contrary, the judge knew how he should perform his functions and which matters he should take into account. This is particularly true when the matters in question are so well known as those specified in section 25(2) [of the Matrimonial Causes Act 1973]. An appellate court should resist the temptation to subvert the principle that they should not substitute their own discretion for that of the judge by a narrow textual analysis which enables them to claim that he misdirected himself."
Nonetheless I am compelled to agree with Mr Ozin that the Tribunal here fell into the errors he has identified.
Conclusion
Postscript
"After the day in court, I really did not expect any different response. I noted the relish upon which you seized upon the falsified evidence against me and then proceeded to treat it as "gospel truth", even though even the tribunal understood its unreliability. This is what I had expected from hungry jurors, but I had hoped for a more balanced approach from a High Court Judge.
I have spent my entire life supporting other people, both adults and children, trying always to act selflessly, knowing my gifts and abilities to create change and tackle social evils. In this way, I am quite the exception, as only few would do what I do, sacrificing themselves for the benefit of others. Perhaps judges meet too many evil people in their lives, that they lack the insight to realise that lasciviousness is often in the beholder's eye, not every piece of evidence is sacrosanct, not every person with a conviction has taken deliberate negative acts, not every law is there to be twisted to their own ends by legal eagles.
I had hoped under the circumstances you would make some attempt to pull apart the rather offensive logic of SOS solicitors, but I guess I can only encourage action and I suppose it is not really your job to do that."