QUEEN'S BENCH DIVISION
ADMINISTRATIVE COURT
Birmingham Civil Justice Centre Priory Courts 33 Bull Street Birmingham B4 6DS |
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B e f o r e :
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The Queen on the Application of SOUTH KESTEVEN DISTRICT COUNCIL |
Claimant |
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- and - |
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1) GRANTHAM MAGISTRATES COURT 2) KEVIN BARTHOLOMEW 3) MARCELLA TOMLINSON |
Defendant Interested Party Interested Party |
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The Defendant did not appear and was not represented.
The Interested Parties did not appear and were not represented.
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MR JUSTICE WYN WILLIAMS:
"Abatement Notice in Respect of Statutory Nuisance"
Immediately above that heading the party served is informed that the notice is issued and served pursuant to section 80 of the Environmental Protection Act 1990. In the body of the first page of the document, he is told what steps are prohibited. In the instant case, the notice required the interested parties, immediately from the service of the notice, to prohibit the recurrence of a statutory nuisance which had arisen from noise from amplified music. There were two abatement notices served, respectively, on each of the interested parties.
"Loud music from inside the marquee on the premises was clearly audible from inside my car parked on the street outside the adjacent house. At 21:00 I entered 55 High Street [that is, the house in question], Caythorpe. I was advised by the occupiers that the music started at around 20:00. The disco music from the marquee was clearly audible inside the house, with tracks being recognisable, including a song by Shania Twain. The bass beat was particularly intrusive. I went into the bedroom where the monitoring had been undertaken, the music was clearly audible and very intrusive. The same could be said in a further bedroom and also in the lounge. I spent some time in the house and there was no improvement. The television in the lounge was turned up louder than would be considered normal. It was my opinion that the requirements of the abatement notice had been breached on this occasion. I left at 21:35."
"…on or about the 20th September 2008 you failed to comply with a required of a noise abatement notice by failing to prohibit noise nuisance at the premises known as the Waggon and Horses, 57 High Street, Caythorpe, NG32 3DR in contravention of s.80(4) of the Environmental Protection Act 1990."
"Noise emitted from premises so as to be prejudicial to health or a nuisance."
Section 80 of the Act is headed "Summary Proceedings for Statutory Nuisances". Subsection (1) reads:
"Where a local authority is satisfied that a statutory nuisance exists, or is likely to occur or recur, in the area of the authority, the local authority shall serve a notice ("an abatement notice") imposing all or any of the following requirements—
(a) requiring the abatement of the nuisance or prohibiting or restricting its occurrence or recurrence."
Subsection (4) of the same section provides:
"If a person on whom an abatement notice is served, without reasonable excuse, contravenes or fails to comply with any requirement or prohibition imposed by the notice, he shall be guilty of an offence."
Subsection (7) reads as follows:
"Subject to subsection (8) below, in any proceedings for an offence under subsection (4) above in respect of a statutory nuisance it shall be a defence to prove that the best practicable means were used to prevent, or to counteract the effects of, the nuisance."
Subsection (8) specifies that that defence is not available in respect of noise nuisance, except where the nuisance arises on industrial, trade or business premises.
"The Magistrates read out the decision, and found both defendants not guilty, as in their opinion the defendants had managed to establish the defence of best practicable means."
"Her evidence was that a Noise Abatement Notice had been served on 13th May 2008. She attended the village on 17th May 2008 but formed the view that the Notice had not been breached. However, following complaints on 20th September her opinion was that noise emanating from the premises that evening was such as to breach the notice.
She stated that she had received a telephone call from Mr Bartholomew saying he was going to install a noise limiting device. She stated that she was not aware whether the noise limiter was in operation on 20th September because the installation of one does not necessarily mean that the noise nuisance will be abated -- it is a device that is usually used indoors. When asked by Mr Rushworth about the most effective means of abating the noise her reply was that the music could have been played indoors or it could have been turned down."
Mrs Gulson's statement then goes on to deal with the evidence of the interested parties:
"[There was one further quotation from Ms Coulthard's evidence]. In cross-examination by Mr Bartholomew she accepted that the telephone call from him about the installation of the noise limiter was on 16th May. He had asked her what level to set it at and she had suggested 45. She also accepted that she had not visited the marquee on 20th September but stated that double-lining it would make very little difference."
The statement of Mrs Gulson then continues with a summary of the evidence given by the interested parties:
"Mr Bartholomew gave evidence on his own behalf. His opening statement was that they had done everything they could to abate the noise nuisance. He explained that because they live in the village they try and keep the neighbours happy. The event of 20th November was a wedding function with fewer than one hundred guests. In the past he had fitted a noise limiting device having sought the Council's advice. On the evening of 20th September they took the following steps:
-- gave advance notice to neighbours asking them to telephone if the noise became too loud;
-- specifically instructed the DJ to keep the noise down;
-- double lined the marquee;
-- walked around the outside of the marquee checking that the noise was kept down;
-- ensured that there was no noise after midnight."
Mrs Gulson summarised the evidence of the other interested party as follows:
"Ms Tomlinson also gave evidence on her own behalf and agreed that they had done everything they could to keep the noise down. She said that they had discussed the event way in advance because of the noise abatement notice: because they are the only place in the community to hold such events they want to ensure they get everything right. She agreed that they had walked around the marquee and that they would have told the DJ to turn the music down if they thought the noise levels were being exceeded but they did not believe they were. She said that they had taken such measures successfully in the past. Although they had music it did not have to be loud to be enjoyable. Under cross examination from Mr Bartholomew she confirmed that they had had music at the function on 17th May (also a wedding) when noise levels were not exceeded."
The reasons why the Magistrates reached their conclusion are set out in the penultimate paragraph on Mrs Gulson's statement. It reads:
"Upon retiring the issue for us was whether the defendants had proved that they had used the best practical means to prevent or counteract the effects of the noise nuisance. We took account of Ms Coulthard's evidence that the best practical means of abating the noise would have been to have had the music indoors or to have turned it down and reminded ourselves that 'practicable' means 'reasonably practicable'. The evidence of Mr Bartholomew was that he had specifically instructed the DJ to keep the music down as well as taking other measures. The evidence of Ms Tomlinson was that they had taken identical measures on 17th May. The evidence of Ms Coulthard was that, having herself attended on 17th May, she took the view that there was no statutory noise nuisance on that day. We therefore reached the conclusion that, having taken measures on 17th May to prevent or counteract the effect of the noise nuisance and having been successful, the defendants had proved to us that they had used the best practicable means to prevent or counteract the effect of the noise nuisance on 20th September 2008."
"(a) 'practicable' means reasonably practicable having regard among other things to local conditions and circumstances, to the current state of technical knowledge and to the financial implications;
"(b) the means to be employed include the design, installation, maintenance and manner and periods of operation of plant and machinery, and the design, construction and maintenance of buildings and structures."
"14. Mr Reed submitted, uncontroversially, that the expression "best practical means" must be construed having regard to the factors set out in section 79(9) of the 1990 Act but requires, ultimately, that a decision be reached that the person relying on that defence has established that he used the best practicable means on the balance of probabilities. Mr Reed contended that if the means undertaken are not established to be the best then the defence has not been made out. I agree with those submissions which, as I have indicated, are essentially uncontroversial and not in dispute.
15. It was Mr Reed's submission that, in order to be satisfied that the statutory defence under section 80(7) has been established, the court must reach the conclusion that the means employed were the best practicable to prevent or counteract the effects of the nuisance in question when compared with any other means or methods which are before the court for its consideration and which, on their face, are practicable and have the ability to prevent or counteract the effects of the nuisance more effectively than has been achieved by the defendant. Mr Reed submitted that, in short, the defendant must establish why all other obvious or, on the face of it, practicable means are not practicable, otherwise it has not been established that the best practicable means have been used. Again, I agree with those submissions which were, in effect, uncontroversial."
I would take a great deal of persuading that I should depart in any way from the views expressed by Forbes J in the St Albans case, he being such an experienced and knowledgeable judge of this court. I intend to adopt precisely the approach adopted by Forbes J in the St Albans case.
MR WIGNALL: Well, if your Lordship will be making quashing orders, I think your Lordship in fact has done, then your Lordship is perhaps in the territory of Rule 54.19 of the CPR, which allows --
MR JUSTICE WYN WILLIAMS: Well, I do not think I have, unless I have chosen my words very awkwardly, I do not think I have yet quashed the order.
MR WIGNALL: Ah.
MR JUSTICE WYN WILLIAMS: Because it does strike me that in the events that have occurred, you may wish to consider, and only consider, whether a declaratory order is sufficient, or do you really want this sent back for the interested parties to have some kind of fine imposed upon them so many months, years now, after the relevant event?
MR WIGNALL: Yes.
MR JUSTICE WYN WILLIAMS: It is your discretion. I am not saying I will not do it, but what are the realities of this case?
MR WIGNALL: My Lord, I wonder whether you would be willing to give me a minute or two to discuss that with the gentlemen behind me?
MR JUSTICE WYN WILLIAMS: Yes, of course. Obviously, if there is still a continuing battle between the interested parties and the council, I can well understand that you may want this case brought to a fruition, in the sense of a conviction recorded and the rest of it. If, on the other hand, the real point was just to try and ensure that Magistrates follow the sections properly, well then you have achieved that anyway.
MR WIGNALL: Let me take some brief instructions from them.
MR JUSTICE WYN WILLIAMS: Yes.
(Pause)
MR WIGNALL: My Lord, I am grateful for the time.
MR JUSTICE WYN WILLIAMS: Yes.
MR WIGNALL: We have no evidence of recent problems in the area. On the other hand, this is a matter where the police have been involved in the past, and I understand there are concerns, in particular from the solicitor who has normal conduct of this case, in conjunction with the Environmental Health Officer, no doubt, that there will be problems this summer; and for those reasons, we do ask you to quash the order. We ask you to remit it with a declaration to the Magistrates that there was no evidence on which they were able to find the defence of best practical means proved. That is our preferred route.
MR JUSTICE WYN WILLIAMS: Yes, all right. I accede to your submission that I should quash the acquittal.
MR WIGNALL: The wording of 54.19 might help the court.
MR JUSTICE WYN WILLIAMS: Yes.
MR WIGNALL: We are looking for a declaration that there was no evidence of best practical means, because that would make sure the Magistrates did not open up the matter again, that particular matter again.
MR JUSTICE WYN WILLIAMS: Yes, I am glad you are so frank about it. I am just ever so slightly anxious about completely tying the hands of the Magistrates, when you have litigants-in-persons and all the rest of it.
MR WIGNALL: Yes.
MR JUSTICE WYN WILLIAMS: I mean, if it were to be the case, for example, that the Magistrates were told in a short new hearing of various factors which, in effect, made it impossible or very impractical to have the music indoors without effectively ruining it, and so it would not happen, is that not something they should receive to test and assess or not?
MR WIGNALL: Well, there has been an unsatisfactory state of affairs going back to matters back in September.
MR JUSTICE WYN WILLIAMS: I know, I know.
MR WIGNALL: 18 months ago. There has to be some finality in proceedings. You would not, by exercising your supervisory jurisdiction, tie the Magistrates hands; because they might say, for instance, this is a matter which should be dealt with by the most lenient of possible penalties. One could see that there would be a full range of penalties available to them.
MR JUSTICE WYN WILLIAMS: Yes.
MR WIGNALL: A discharge of some sort might be available to them. But it would be a shame to send everyone back after 18 months to re-litigate the whole matter.
MR JUSTICE WYN WILLIAMS: Well, I suppose what 54.9 actually means --
MR WIGNALL: 54.19?
MR JUSTICE WYN WILLIAMS: 54.19 -- is that I quash the decision, I remit it to the decision maker, and direct it to reconsider the matter, and reach a decision in accordance with the judgment of the court. It does not actually empower me to grant the declaration that you suggest. I mean, they must read my judgment, and if there was no other evidence, then that is end of it.
MR WIGNALL: Yes, I suppose in some circumstances, that might be a battle for another day even, but --
MR JUSTICE WYN WILLIAMS: Yes.
MR WIGNALL: Yes.
MR JUSTICE WYN WILLIAMS: So I will accede to your submission that the appropriate order is to quash the acquittal, to remit the case to the Magistrates, and to make a direction that they reconsider it, and reach a decision in accordance with my judgment.
MR WIGNALL: Yes. I am grateful, my Lord. The other matter might be costs, but your Lordship will be aware that, save for exceptional circumstances, the defendants have not come to defence the --
MR JUSTICE WYN WILLIAMS: I think I would be straying outside the conventional wisdom if I were to make an order for costs.
MR WIGNALL: You would, yes. I am grateful. Thank you very much.
MR JUSTICE WYN WILLIAMS: Right. And obviously, that was an extempore judgment. If, as I assume, there will have to be a transcript go to the Magistrates, then you will not be surprised that at least my poor use of language on occasions will be corrected.
MR WIGNALL: It sounded perfect, my Lord.
MR JUSTICE WYN WILLIAMS: I was not soliciting compliments. But sometimes parties, I know you will not be, but sometimes parties think, "Well, he did not quite say that", when they get the written judgment. But I think obviously in a case where the court below will need to consider my words, then if necessary I will permitted to improve upon them.
MR WIGNALL: Excuse me, my Lord. Does that mean that there will not be a written judgment coming up?
MR JUSTICE WYN WILLIAMS: No, no, but I presume that someone will have to obtain a transcript, which means I will have to approve it, that is all, and there may be a few alterations, that is all. Thank you very much.