United Kingdom Journals
You are here:
BAILII >>
Databases >>
United Kingdom Journals >>
<a name="Heading1"></a>Tinkering or transformation? Proposals and principles in the White Paper, ‘Justice for All’.
URL: http://www.bailii.org/uk/other/journals/WebJCLI/2002/issue5/fitzpatrick5.html
Cite as:
<a name="Heading1"></a>Tinkering or transformation? Proposals and principles in the White Paper, ‘,
,
Justice for All’
[
New search]
[
Help]
Tinkering or transformation?
Proposals and principles in the White Paper, ‘Justice for
All’.
Ben Fitzpatrick*
*I am grateful to my colleague Nick Taylor, to the editor of the Web Journal
of Current Legal Issues, and to the anonymous referee, for their helpful comments
on an earlier draft of this piece.
Copyright
© 2002 Ben
Fitzpatrick.
First Published in Web Journal of
Current Legal Issues.
Summary
The Government has recently published another Criminal Justice Bill. Much
of the content of this Bill draws on the White Paper ‘Justice for All’,
published in July 2002. This article seeks to examine some of the key proposals
put forward in the White Paper, together with the principles that underlie
them, and to subject them to critical scrutiny. It is suggested that the White
Paper, while indeed far-reaching, is arguably not the radical work of policy
suggested by its marketing. Rather, this article suggests that the White Paper
is the latest in a line of official publications which are driven by bureaucratic
imperatives as much as by considerations of ‘justice’. The article
also suggests that the White Paper, through its professed aim - to rebalance
the criminal justice system in favour of the victim and the community so as
to reduce crime and bring more offenders to justice - risks reinforcing the
problematic argument that the best way of integrating a victim perspective
in criminal justice is through the erosion of defendants’ due process
rights.
Contents
- Introduction
Key proposals
- Double Jeopardy
Juries
Using all Relevant Evidence
- Efficiency and joined up criminal justice
Conclusions and context
Introduction
At the time of writing, further significant reform
to the criminal justice system has just been announced in the Queen’s
Speech. Much of the content of the relevant Criminal Justice Bill, (published at
http://www.publications.parliament.uk/pa/cm200203/cmbills/008/2003008.htm)
draws on the White Paper, ‘Justice for All’ (Home Office, Lord
Chancellor’s Department and Office of the Attorney-General 2002, hereafter
in references, ‘
White Paper’), a review of criminal justice
which suggests that the system needs to be reconfigured in a way which benefits
victims and which enables more offenders to be brought to justice. Predictably,
the Paper, at the time of its publication, was trumpeted as a radical recasting
of the criminal process, a theme reiterated through the Queen’s Speech.
The Home Secretary, David Blunkett, introduced the Paper to the House of Commons
as an ‘end-to-end reform’ (
Hansard, 17 July 2002, col. 287);
he went on to suggest that ‘[t]he proposals that we have set out are
far-reaching, radical and require a culture change.’ (
Hansard, 17
July 2002, col. 289). To be fair, the Paper is ambitious and broad in its scope,
though, as will be proposed, it is perhaps not as radical as has been suggested.
It is the purpose of this article to discuss a number of the key proposals in
the White Paper; to question both its premise and its marketing; and to draw
some conclusions which consider the context from which the White Paper emerges.
What follows does not purport to be a comprehensive resume of all the ground
covered by the Paper.
Key proposals
Double Jeopardy
Although its treatment in the Paper is relatively brief (White Paper, paras.
4.63-4.66), arguably the most notable proposal, and certainly one which has
already stimulated considerable debate, concerns the relaxation of the Double
Jeopardy principle. In fairness, the English literature on double jeopardy
is relatively sparse. (For recent treatments, see James, Taylor, and Walker
(2000), and Roberts (2002)). The suggestion in the White Paper is that in
situations of designated serious crimes,(1)
where a defendant has been acquitted, the emergence of compelling new evidence
may permit the bringing of a second prosecution. This is a more far-reaching
proposal than that of the Law Commission (Law Com No 267), which recommended
relaxation in murder cases only. The White Paper proposal bears a closer resemblance
in this respect to that of the Home Affairs Select Committee (1999-2000),
who suggested relaxation of the principle in respect of offences for which
a life sentence was available on conviction. The White Paper proposal does
indeed represent a significant departure from current principle, and ought
to be approached with caution. The Paper suggests that it is not likely that
the relaxed principle will be invoked frequently, but that it is nonsensical,
and damaging to the credibility of the criminal justice system, that defendants
against whom fresh compelling evidence arises, or indeed who subsequently
confess to the commission of a crime, should escape justice merely on the
basis of a previous acquittal. There is indeed a degree of force in that suggestion,
particularly with regard to the development of forensic techniques which enable
the gathering and analysis of evidence in ways that would not have been possible
a number of years ago. Clearly, a principal context for this aspect of the
proposals is the development of DNA technology, and of Cold Case Review techniques.
Indeed, it seems that statutory reform and interpretation is developing in
a congruent direction. The increased utility of DNA evidence has been accompanied
by reform and interpretation of the relevant provisions of the Police and
Criminal Evidence Act 1984, in a manner such as to enhance powers of law enforcement
to retain DNA samples (see PACE, s. 64, as amended by Criminal Justice and
Police Act 2001, s. 82; Attorney General's Reference (No 3 of 1999)
[2001] 2 AC 91; R (on the application of S) v Chief Constable of South
Yorkshire [2002] EWCA Civ 1275). Nonetheless, what is proposed in the
White Paper remains a considerable development and, in such circumstances,
one would hope that safeguards would be put in place to ensure that change
remained proportionate. It is notable that, first, the evidence which it is
sought to adduce at the second trial could not reasonably have been adduced
at the first trial. This is supposedly a check on frivolous and speculative
repeat prosecutions. To be effective however, there will need to be a robust
interpretation of what could ‘reasonably’ have been adduced. As
lawyers are aware, reasonableness is a notoriously elusive concept. It is
to be hoped that the reasonableness hurdle does not become illusory. It should
also be noted that the permission of both the DPP and the Court of Appeal
will be required before a second prosecution can be brought. Such a requirement
seems sensible in the light of the novelty of the state of affairs being proposed.
Once again, it is to be hoped that this hurdle is indeed real, and that the
endorsement of repeat prosecutions does not become a mere matter of routine.
A significant concern remains. What are the jury in the second trial to make
of the situation? Is there not a risk that they will be illegitimately prejudiced
in favour of a conviction? The second prosecution can only, after all, be
brought when there is ‘compelling’ new evidence. Indeed, in a
House of Commons debate which was not especially antagonistic, the White Paper
having commanded general cross-party support, it was this question which elicited
the least developed response from the Home Secretary.(2)
He suggested that ‘[t]here is a genuine question about what assumptions
may be made about the Appeal Court deciding to go ahead and about the information
in relation to the case that is already in the public arena. There are genuine
problems, but I think that we can overcome them ...’ (Hansard
17 July 2002, col. 298). The regrettable logic of the double jeopardy proposals
would be to permit the appellate court simply to substitute a conviction for
the earlier acquittal. On the hopefully uncontroversial assumption that this
is unacceptable, it is crucial that second trials in double jeopardy cases
are more than just a formality. However, there is also a fairly strong political
momentum behind the relaxation of the rule, which may also explain the proposal
to make the relaxation retrospective. The recent impetus for reform can be
traced back to the MacPherson Report (1999) into the murder of Stephen Lawrence.(3)
Other high profile cases have suggested that in some cases, strongly suspected
offenders are slipping through the net (Casciani 2002). Nonetheless, the double
jeopardy principle is not a mere technicality which prevents the bringing
to justice of unmeritorious defendants. Rather, it serves at least two reasonably
definable objectives. First, it performs a declaratory function, informing
citizens of the cut-off point, beyond which they can be sure that the criminal
process will no longer be levied against them in respect of the relevant alleged
offence. (4) Secondly,
it is a significant constitutional safeguard against the abuse of state power
and the illegitimate pursuit of suspects.(5)
It will be recalled that the double jeopardy principle is sought to be relaxed
in the context only of designated serious offences. There is an uncomfortable
tension here. While there is an unquestionable public interest in having serious
offenders brought to justice, it might also be argued that the generality
of those accused of serious crimes are those who most need protection
against excessive attention from the State. The public interest in having
offenders brought to justice is perhaps best served by their underlying, though
less attention-grabbing, interest, in having serious offences investigated
appropriately. It is to be hoped that those accused of serious crimes do not
become victims of a reform which makes a strident political point, at the
potential expense of principle.(6)
Top | Contents | Bibliography
Juries
It is also likely that the debate stimulated by the White Paper will address
the continuing demise of jury trial. It is certainly the case that previous
attempts at reducing the availability of jury trial, some fairly recent, have
foundered.(7) It is also true that
the mere suggestion that the role of jury trial should be diminished makes
commentators twitchy, and evokes impassioned public debate. Nonetheless, there
is an argument that, in some respects, the suggestions on this issue
in the White Paper are not especially radical. The passion that surrounds
debate on juries may well be predicated on a false assumption that the jury
is somehow the bedrock of criminal justice (Darbyshire 1991). In terms of
the allocation of business, it is trite to note that this is not the case
– depending on the statistics to which one subscribes, it might be contended
that the best part of 98% of cases never get anywhere near a jury. Furthermore,
the invocation of fundamental constitutional principles in defence of the
jury is also perhaps rather spurious. A simple comparison with other jurisdictions
should be enough to inform us that there are other ways of conducting criminal
trials (though it is of course acknowledged that the absence of lay factfinders
elsewhere is often accompanied by other systemic differences which do render
simple comparison problematic). Indeed, it might be suggested that our attachment
to juries is a product of historical romanticism, and of idyllic notions of
rights. The Magna Carta jury was no egalitarian statement of the right to
be tried by one’s peers. Rather, it was a device to ensure that members
of the nobility could not be tried by those ‘beneath’ them. While
clause 39 of Magna Carta refers to judgment by one’s ‘peers’,
it seems that ‘peers’ is being used in the sense of ‘social
equals’, rather than as a reference to the population at large. One
might compare the approach of Blackstone (1765), suggesting that a ‘right’
to jury trial was guaranteed by Magna Carta, with the prevailing view of Maitland
(1908, p. 169) who states, ‘the barons want a court of their equals
- they are to be judged by barons’.
It should also be noted that the right to elect jury trial in an either way
case will not be affected by the proposals (White Paper, para.
4.22). However, it is worth remarking that while this is a formal retention
of the right to elect, other systemic factors, such as legal advice to defendants,
may well affect the manner in which this right is exercised. In any
event, the decline of the jury, which the White Paper suggests will take place
by the expansion of magistrates’ jurisdiction, should be regretted for
a number of reasons.
Fewer juries means less public participation in criminal justice. This is
not only a disappointment in itself, but it also cuts against one of the more
laudable themes of the Paper – namely the re-engagement of the public
(White Paper, chapter 7). It also undoes some of the good work that
could be done by the proposals to reduce the possibilities of opting out of
jury service and to enhance jury representativeness. This part of the White
Paper proceeds on the basis that ‘members of the community have a responsibility
and a duty to carry out jury service if they possibly can’ (White
Paper, para. 7.25). There are a number of aspects to the proposals, some
of which are operational already. First it is hoped to streamline the jury
summoning process through the establishment of a Central Jury Summoning Bureau,
which will adopt a consistent approach to excusals and will operate a norm
of deferral to a later date rather than excusal from jury service where appropriate.
Secondly juror motivation and satisfaction is to be enhanced through better
provision of information and more effective case management to ensure that
jurors’ time is spent optimally. It should be noted that while these
are measures which are designed in part, to increase the pool of available
jurors, it is not proposed to depart from the Electoral Register as the basis
for jury eligibility; nor does the White Paper adopt recommendation 25 of
the Auld Review (2001), that in cases where race is a significant issue, the
judge should have the power to arrange for a multi-ethnic jury to hear the
case (White Paper, paras. 7.27-7.30).
A further cause to regret the demise of the jury would be the concomitant
increase in magistrates’ sentencing powers, which has the potential
to increase the use, at a time of well documented overcrowding, of short jail
terms, which, on account of their brevity, can serve little useful rehabilitative
function. In this context, the innovative approach to sentencing outlined
in the Paper might be welcomed. The Paper suggests that custody should be
focused on dangerous, serious and seriously persistent offenders and those
who consistently breach community sentences (White Paper, para. 5.6).
It also outlines a number of forms of sentence with a custodial element, but
which utilise that element in non-traditional ways, through, for example,
non-continuous application, or through combination with other forms of disposal.
To digress briefly, the proposed new forms of sentencing are, in summary,
reported as follows: (i) Customised Community Sentence – all
the sentence served in the community; all existing community sentences available
together, allowing sentencers to fit the restrictions and rehabilitation to
the offender; (ii) Custody Plus – a prison sentence of up to
3 months, followed by a compulsory period of supervision in the community,
within an overall sentence envelope of up to 12 months; (iii) Custody Minus
– a prison sentence suspended for up to 2 years, whilst a programme
in the community is undertaken; breach of the community programme will result
in imprisonment; (iv) Intermittent Custody – a prison sentence
would be served for example at weekends whilst the community programme is
served through the week; (v) Prison Sentences of 12 months and over
– half served in prison, half in the community; automatic release will
be at the halfway point, with license conditions extending till the end of
the community sentence period; (vi) Dangerous violent and sexual offenders
– an indeterminate sentence triggered by violent and sexual offences
and an assessment that the offender is dangerous (White Paper, para.
5.19).
However, there may well be difficulties in the implementation of these sentencing
policies, and not merely on the basis of the vexing issues of principle which
underpin penality. It seems that budgetary constraints are likely to delay
the introduction of the interesting custody plus scheme (Travis and
Dyer 2002).
There are other jury issues which ought to raise concern. First, the proposed
power for a judge to discharge a jury if an attempt has been made to intimidate
or influence them, or in cases where there is a serious risk that they will
be subject to bribery or intimidation (White Paper, paras. 4.32-4.33)
is ripe for abuse by the unscrupulous. It also suggests a lack of faith in
retrials and in the tainted acquittal procedure under the Criminal Procedure
and Investigations Act 1996, sections 54-57. Secondly, the resurrection of
the suggestion that juries should not sit in serious and complex fraud trials,
traceable back to the work of the Fraud Trials Committee (1986) (‘the
Roskill Committee’) is problematic.(8)
The rationale is that juries are unable to grasp the complexity of the
facts of such cases, and that, if convictions are to be secured and credibility
maintained, then their involvement is inappropriate. The response to this
might be that fraud trials are essentially about dishonesty, which is a concept
with which jurors are entrusted in the context of theft and related offences.
Furthermore, jurors are entrusted with complex scientific evidence in other
areas, including cases involving the opaque mathematics of DNA match probabilities.
It might of course be argued that jurors do not deal with such evidence especially
well, perhaps overstating its significance - scientific evidence has, after
all, an inauspicious role in a litany of high profile miscarriages of justice,
including the cases of The Birmingham Six, The Guildford Four, and
Stefan Kiszko (Stockdale and Walker 1993; Walker and Stockdale 1999).
While the contention of the White Paper is that factual complexity has the
potential to obscure the full extent of criminality in some cases, and consequently
to create a de facto differentiation between ‘white collar’
and ‘blue collar’ crime (White Paper, para. 4.29), it might
be suggested that the existence of alternative procedures for complex cases
reinforces that distinction not merely de facto, but also as a matter
of law.(9)
The answer is arguably not to get rid of juries in such cases, but to ensure
that difficult issues are explained to them in a way which renders them clear,
while not losing sight of the underlying complexities. It is at least arguable
that this is a problem of advocacy and presentation rather than comprehension.
Top | Contents | Bibliography
Using all Relevant
Evidence
Use of a defendant’s
previous convictions
The proposals regarding the use of a
defendant’s previous convictions at trial received a degree of media
attention which is arguably disproportionate to the extent to which the issue is
developed in the White Paper (at
paras. 4.54-4.59). What seems to be
suggested is a dual test of relevance and sufficient probative value to outweigh
the prejudicial effect of admitting a previous conviction as evidence. This may
amount to a mere restatement of aspects of the present law, as contained in the
rules regarding so-called similar fact evidence, which allow the prosecution to
adduce such evidence in
chief;
(10)
and in the Criminal Evidence Act 1898, which
allows the defendant to be cross-examined on certain of his or her previous
convictions under defined
circumstances.
(11)
Conversely, the context in which this discussion takes place, namely the
desirability of getting all relevant evidence to factfinders, might suggest that
the view of the Government is that this is not happening at present. The
assimilation into a single statute of the various principles developed by
Parliament and the courts regarding the admissibility of previous misconduct
should be welcomed, on the grounds of clarity and accessibility. Indeed, that
this is part of the rationale for reform in this area is acknowledged by the
White Paper’s description (at para. 4.57) of the present law as a
‘haphazard collection of exclusionary rules’. However, it would, it
is submitted, be misguided at this stage to consider expansion of the role of
previous convictions as evidence, until a fuller exploration of the White
Paper’s conception of ‘relevance’ has been undertaken, and
until there is sound indication that lay factfinders can undertake their task
without being unduly swayed by such evidence. Indeed, the research referred to
by the Law Commission
(Law Com No 273
, paras. 6.37-6.42) suggests
that this is a considerable risk.
Hearsay
The White Paper offers a relatively brief treatment
of the rule against hearsay before suggesting its relaxation (
White Paper,
paras. 4.60-4.62). It is a fairly common view that the rule against hearsay
can hinder the admission of potentially relevant evidence on what might be
viewed as technical grounds (see eg,
Kearley [1992] 2 AC 228;
Percy
Smith [1976] Crim LR 511). Such a state of affairs can impact adversely on
both the prosecution (
Kearley [1992] 2 AC 228) and the defence (see eg,
Sparks v R [1964] AC 964;
Blastland [1986] AC 41). It is also
arguably true that some of the original rationales for the rule against hearsay,
most particularly jury illiteracy, are no longer relevant. Having said that,
other rationales to do with the reliability of hearsay evidence and the utility,
in an adversarial system, of cross-examination of witnesses in person, remain.
Indeed, the Law Commission (Law Com No 245,
para. 3.37) have suggested
that, ‘... the main, if not the sole, reason why hearsay is inferior to
non-hearsay is that it is not tested by cross-examination’. Once again, it
is not absolutely clear whether the proposals represent a significant departure
from the current law. The situations instanced in the Paper where hearsay
evidence in documentary form ought to be admitted, namely ‘if there is a
good reason for the original maker not to be able to give the evidence
personally (for example, through illness or death) or where records have been
properly compiled by businesses’, correspond broadly to the existing law
in sections 23 and 24 of the Criminal Justice Act 1988. However, the novelty
appears to be in the suggestion that such evidence should automatically go in,
rather than its admissibility being
judged.
(12)
Once again, there is something to be said for the collection of the disparate
common law and statutory rules relating to hearsay into a single source.
However, the analogy with civil law, where the hearsay rules have all but
vanished, does not stand up to scrutiny, on the basis of what is respectively at
stake in civil and criminal cases. Insofar as the rule against hearsay can
operate to prevent the admissibility of evidence of potentially doubtful
reliability, and of potentially prejudicial effect, a blanket presumption of
admissibility, with the question of weight being left to the factfinder, is
perhaps not appropriate.
Efficiency and joined up
criminal justice
A key priority which informs ‘Justice for
All’ is the making of efficiency gains. It is suggested that through
expedited pre-trial and trial procedures and through a more generalised
‘joined up criminal justice’, significant administrative advances
will be made. To this extent, the Paper is the latest in a line of official
publications which in more and less explicit terms, recognise efficiency almost
as a primary, rather than merely instrumental or second order good. That is to
say, efficiency is viewed as an end in itself, rather than as a
means to
a further end – eg, the facilitation of justice. The list of such
publications arguably begins with the Royal Commission on Criminal Justice
(1993). (See also Home Office 2001, and, generally, Belloni and Hodgson 2000).
The potency of efficiency as a rhetorical device is that it carries with it the
look of a self-evident desideratum (Redmayne 1997). However, efficiency gains
have, in the recent past, gone hand in hand with the erosion of
defendants’ rights – one recalls the Royal Commission on Criminal
Justice (1993, p. i) and its ‘having regard to the efficient use of
resources’ - which, in spite of its due process
origins,
(13)
fed into a body of highly authoritarian criminal justice reform including the
erosion of the right to
silence,
(14)
and the introduction of expanded defence duties of
disclosure.
(15)
It is clear that in this instance, the Government is not perturbed by the
potential reduction in protection for defendants. There are, in political terms,
other priorities against which this has been traded off. It is one sense rather
disappointing to think that after the best part of a decade of reconfiguring the
system to the detriment of suspects, the official position is that they are
still illegitimately
advantaged.
(16)
In this context, the further expansion of the defence duties of disclosure
posited in the White Paper is a matter of particular concern (
White Paper,
paras. 3.46-3.57). It is proposed that defendants will have to disclose
unused expert witness reports and details of all witnesses to be called, in
order that adverse comment may be made on surprise witnesses. Such a proposal
might be viewed as
heavy-handed,
(17)
as a further blurring of the boundaries between adversarialism and
inquisitorialism,
(18)
and finally, as a touch premature, given that the full human rights implications
of the disclosure regime under the Criminal Procedure and Investigations Act
1996, and the associated common law, have yet to be explored. Similarly, the
predictable pillorying of defence lawyers as criminal justice obstructionists is
a matter of particular
concern.
(19)
The tone in which this aspect of the debate has been conducted is not especially
constructive. Defence lawyers are the perennial whipping-boys of criminal
justice. Their repeated denigration does little to foster a climate conducive to
principled debate and obscures the individual, institutional and systemic
deficiencies elsewhere in the process.
The
notion of ‘joined up criminal justice’, in a more general sense, is
less controversial, though not wholly unproblematic. Three instances of such
strategy and practice will be considered here. First, the White Paper (at paras.
3.25-3.28) endorses the experiments in police and CPS co-location and the
concomitant cost-savings that such practices produce. It might be argued that
more could be made of the potentially contentious aspects of such co-location
and the need to maintain appropriate constitutional, strategic and operational
independence among various criminal justice actors. Secondly, the Paper proposes
the unification of trial court administration under a single agency (
White
Paper, paras. 9.14-9.20). This would spell the end for the current roles of
the Court Service and Magistrates’ Courts Committees. For the latter
particularly, this may be a matter of considerable
controversy,
(20)
although there is a sense in which this is a predictable change, given the
reconfiguration of Magistrates’ Courts Committees so as to be coterminous
with Crown Prosecution Service and Police areas. It is proposed to integrate and
develop the management framework by setting up forty two local Criminal Justice
Boards, reporting to a new National Criminal Justice Board. The debate as to the
appropriate respective roles of central and local administration in criminal
justice will no doubt continue (Fitzpatrick, Seago, Walker and Wall 2000; 2001).
The third instance of joined up criminal justice which will be referred to here
is the proposal to increase the systematic use of information technology in
criminal justice. The suggestions vary from the mundane – the need to
enable criminal justice professionals to communicate electronically in a secure
environment; a recognition of the utility of information technology in case
management - it is proposed that by 2003 secure e-mail will be available across
the criminal justice system, and that by 2005 all criminal justice organisations
will be able to exchange case file information electronically (
White
Paper, para. 9.48) - to the highly ambitious – it is proposed that by
2005 victims will begin to be able to track the progress of their case on line
(
Ibid.) It is beyond the scope of this article to develop this issue in
detail. It ought to be remarked, however, that the history of information
technology in public legal administration is not
auspicious.
(21)
Top | Contents | Bibliography
Conclusions and
context
It might be wise to remain vigilant to the potential
for slippage of criminal justice principles, which is perhaps exacerbated, if
not by the White Paper itself, then by the terms in which debate on it is
conducted. The Shadow Home Secretary, Oliver Letwin, suggested, in the House of
Commons, that ‘The purpose of a criminal trial is twofold: to convict the
guilty and to acquit the innocent. Each of those is as important as the
other’ (
Hansard, 17 July 2002, col. 290). That this highly
problematic remark was able to pass wholly unchallenged should alert those
concerned with criminal justice that the official consensus on its core values
is not immutable. The Paper is (un)marked by a disconcerting lack of sustained
engagement with the European Convention on Human Rights, which suggests that
that document is not necessarily the framework of norms within which principled
reform is countenanced. The tenor and aspirations of the Paper mean that this
lack of engagement is not necessarily surprising. Human Rights are arguably less
of a selling point when one is attempting to secure
convictions
(22)
– interestingly, one rarely hears the maxim nowadays that it is better
that ten guilty people go free than that one innocent is
convicted.
There is a fascinating disjuncture
at the heart of ‘Justice for All’. On the one hand, the document is
marketed as a radical, balance-restriking, ‘end-to-end’ reform
exercise. In fairness, its ambit is fairly comprehensive, running from
investigative processes, through to post-conviction outcomes. Furthermore, in
some instances, particularly with regard to forms of sentencing, it is genuinely
progressive. On the other hand, in the context of some aspects of trial and
pre-trial processes, the proposals often restate or develop incrementally
procedures which are in operation already. To this extent, one might question
the pretext of the Paper, namely that there is the need to rebalance the
criminal justice system in favour of the victim and to bring more offenders to
justice. Where changes are minimal, it might follow that the balance has already
been restruck. The Paper is thus also an object lesson in how insidious criminal
justice change can be – we have come quite a distance when reforms touted
by the Government as radical are not so, for the reason that they may in fact
barely be reforms at all. Much of the radical work, it is argued, was done a
while ago. However, the manner in which the reforms are marketed is more than
just a cosmetic problem. The aim of integrating a victim perspective into the
criminal process is laudable, as is that of bringing more offenders to justice.
However, it is the linkage of these two aims in the ‘single clear
priority’ which runs the risk of perpetuating the myth that the most
appropriate way to develop victim’s rights is through the erosion of those
of
defendants.
(23)
This is not to denigrate victims’ rights, which are quite rightly viewed
as integral, but it is merely to suggest that enhancement of such rights is
arguably a far more sophisticated proposition than the interference with fair
trial protections. In this context, it is pleasing to see that the Paper does
develop a more holistic view of the ability of victims to participate in, and to
secure appropriate outcomes from, the criminal process (
White Paper,
chapter 2).
There is thus a sense in which
the White Paper, as is so often the case in the field of criminal justice, is as
much about political posturing, and the need to sound tough at a time of
supposed disquiet about crime, as it is about principled reform. On such
occasions, the implications for the law are liable to be subsumed within and
obscured by political messages. For that very reason, radical or not, the White
Paper and its legislative progeny ought to be subjected to the utmost
scrutiny.
Bibliography
Ashworth, A, (1998)
The Criminal Process: an
Evaluative Study (2nd ed.), (Oxford: Oxford University
Press)
Auld Review (2001)
A Review of the
Criminal Courts of England and Wales
http://www.criminal-courts-review.org.uk/Belloni,
F, and Hodgson, J, (2000)
Criminal Injustice: An Evaluation of the Criminal
Justice Process in Britain (London:
Macmillan)
Bennetto, J (2002) ‘Met chief:
I will use new law in Lawrence case’
The Independent, 2 September,
p. 1
http://news.independent.co.uk/uk/legal/story.jsp?story=329658
Blackstone, W (1765)
Commentaries on the
laws of England (Oxford: Clarendon
Press)
Casciani, D, (2002) ‘A place for
the victims’
http://news.bbc.co.uk/1/hi/uk/2132034.stmDarbyshire,
P, (1991) ‘The lamp that shows that freedom lives - is it worth the
candle?’
Criminal Law Review
740
Fitzpatrick, B, (1999) ‘Disclosure:
Principles, Processes and Politics’ in Walker, C, and Starmer, K (eds)
Miscarriages of Justice: A Review of Justice in Error (London,
Blackstone) p. 151
Fitzpatrick, B, Seago, P,
Walker, C, and Wall, D (2000) ‘New Courts Management and the
Professionalisation of Summary Justice in England and Wales’ 11
Criminal Law Forum 1
Fitzpatrick, B,
Seago, P, Walker, C, and Wall, D (2001) ‘The Courts: New Court Management
and Old Court Ideologies’ in
Policy Networks in Criminal Justice
(eds., Ryan, M, Savage, S, and Wall, D) (Basingstoke: Palgrave), p.
98
Fraud Trials Committee (1986)
Report
(London: HMSO)
Griffiths, C (2002)
‘Counsel for the defence’
The Observer, 21 July, p.
25
Hansard (2002)
House of Commons
Debates 17 July 2002
http://www.parliament.the-stationery-office.co.uk/pa/cm200102/cmhansrd/cm020717/debtext/20717-04.htmHome
Affairs Select Committee (1999-2000)
The Double Jeopardy Rule (London:
TSO) HC 190
Home Office (1989)
Magistrates’ Courts: Report of a Scrutiny (London:
HMSO)
Home Office (2001)
Criminal Justice:
The Way Ahead (London: TSO) CM 5074,
Home
Office, Lord Chancellor’s Department and Office of the Attorney-General
(referenced in text as ‘
White Paper’)
(2002)
Justice for All (London: TSO) CM 5563
James, A, Taylor, N, and Walker, C, (2000)
‘The Reform of Double Jeopardy’ 5
Web Journal of Current Legal
Issues. http://webjcli.ncl.ac.uk/2000/issue5/james5.htmlLaw
Commission No 245 (1997)
Evidence in criminal proceedings: Hearsay and
related topics (London: TSO) Cm 3670
Law
Commission No 267 (2001a),
Double jeopardy and prosecution appeals,
(London: TSO) Cm 5048
Law Commission No 273
(2001b)
Evidence of bad character in criminal proceedings, (London: TSO)
Cm 5257
Leng, R, (1995) ‘Losing Sight
of the Defendant: The Government’s Proposals on Pre-Trial
Disclosure’
Criminal Law Review
704
MacPherson Report (1999)
The Stephen
Lawrence Inquiry - Report of an Inquiry by Sir William Macpherson of Cluny
(London: HMSO) Cm 4262
Maitland, F (1908)
Constitutional History of England (Cambridge: Cambridge University
Press)
Nobles, R and Schiff, D, (2000)
Understanding miscarriages of justice: law, the media, and the inevitability
of crisis (Oxford: Oxford University
Press)
Redmayne, M., (1997) ‘Process
Gains and Process Values: The Criminal Procedure and Investigations Act
1996’ 60
Modern Law Review
79
Roberts, P (2002) ‘Justice for all?
Two bad arguments (and several good suggestions) for resisting double jeopardy
reform’
International Journal of Evidence and Proof
199
Royal Commission on Criminal Justice
(1993)
Report (London: HMSO)
Cm.2263
Serious Fraud Office (2002)
Annual
Report 2001-02
http://www.sfo.gov.uk/publications/annual_2002.asp
Stockdale, R and Walker, C, (1993) ‘Forensic
Evidence’ in
Justice in Error (eds., Walker, C and Starmer, K),
(London: Blackstone), p. 75
Travis, A and Dyer,
C, (2002) ‘Alarm at wider justice rules change’
The Guardian,
18 July, p. 1
Walker, C, and Stockdale, R,
(1999) ‘Forensic Evidence’ in
Miscarriages of Justice: A Review
of Justice in Error (eds., Walker, C and Starmer, K), (London: Blackstone),
p. 119
()(1)
The White Paper, at para. 4.64, refers to ‘a number of other very serious
offences
such as rape, manslaughter and armed robbery’ (emphasis
added).
(2)
The question was put to the Home Secretary by Frank Cook, MP for Stockton,
North, in whose own region something of a double jeopardy
cause celebre
has arisen (
Hansard 17 July 2002, col. 298). Julie Hogg was murdered, and
her body was found behind a bath panel. Billy Dunlop was charged with her murder
and acquitted. Several years later he confessed to the crime. He was convicted
of perjury. On the Julie Hogg case, see Casciani
(2002).
(3)
See Recommendation 38 of the Report. The irony is, as James, Taylor and Walker
(2000) point out, that even a relaxed double jeopardy principle would
conceivably not facilitate a successful second prosecution, if the problem with
the first prosecution was to do with the nature of the original investigation.
Under the current proposals, the requirement that the new evidence should not
reasonably have been available at the first trial could work against the
prosecuting authorities in this case. Nonetheless, Sir John Stevens, the
Metropolitan Police Commissioner has stated that he would use the proposed
changes to pursue the relevant suspects (see Bennetto (2002, p. 1). The White
Paper proposals on double jeopardy have been lambasted by Courtenay Griffiths
(2002, p. 25) as ‘a most cynical exploitation of the case of Stephen
Lawrence’. It may be recalled that he is the defence barrister who came to
prominence in the 2001 trial of those accused of murdering schoolboy Damilola
Taylor (another case which the Metropolitan Police Commissioner is considering
reappraising should the double jeopardy reforms go ahead (see above)).
(4)
See the comments of Black J. in the US Supreme Court: ‘The underlying
idea, one that is deeply ingrained in at least the Anglo-American system of
jurisprudence, is that the State with all its resources and power should not be
allowed to make repeated attempts to convict an individual for an alleged
offence, thereby subjecting him to embarrassment, expense and ordeal and
compelling him to live in a continuing state of anxiety and insecurity, as well
as enhancing the possibility that even though innocent he may be found
guilty.’ (
Green v
US 355 US 184 (1957) at p.
187).
(5)
See the so-called ‘
Connelly principle’, the application of
abuse of process rules in a manner informed by the decision in
Connelly v
DPP [1964] AC
1254.
(6)
It is perhaps worthy of note at this stage that this section of the White Paper
is somewhat unusual in that it makes explicit reference to the European
Convention on Human Rights. Interestingly, double jeopardy is an area in which
this jurisdiction could afford to relax its protections for defendants without
necessarily falling foul of the Convention: see Protocol 7, Article 4, of the
ECHR, which states:
‘1 No one shall be liable
to be tried or punished again in criminal proceedings under the jurisdiction of
the same State for an offence for which he has already been finally acquitted or
convicted in accordance with the law and penal procedure of that
State.
2 The provisions of the preceding paragraph
shall not prevent the reopening of the case in accordance with the law and penal
procedure of the State concerned, if there is evidence of new or newly
discovered facts, or if there has been a fundamental defect in the previous
proceedings, which could affect the outcome of the case.
...’
Protocol 7
has yet to be ratified, but, according to the Human Rights Unit of the Lord
Chancellor’s Department, there is an intention to do so. See
http://www.humanrights.gov.uk/hrafaqs.htm.
(7)
Criminal Justice (Mode of Trial) Bill 1999; Criminal Justice (Mode of Trial)
(No. 2) Bill
2000.
(8)
The White Paper seeks to identify special types of case which are so complex
and lengthy that they might be best served by trial by judge alone (paras.
7.24-7.27). It should also be noted that the Paper invites views on the
extension of judge-only trials to ‘some organised crime cases where there
are similar complex financial and commercial arrangements’ (para.
4.31).
(9)
A good deal of the scepticism towards jury involvement in fraud trials arises
from the high-profile trial and acquittal of the Maxwell brothers. However, the
Serious Fraud Office claims an 86% conviction rate over the last five years (see
Serious Fraud Office (2002). If the conviction rates in such cases are
respectable, it might be suggested that the real rationale for the proposed
change is the making of efficiency gains. Juryless trials in these undoubtedly
complex cases would not be beset by the difficulty of recruiting a cohort of
factfinders who were able to serve for the requisite (probably long) period (see
White Paper, para. 4.28). Also, the theory goes that in the absence of a
jury, the trial itself could proceed more
quickly.
(10)
There is an immense case law on this issue, but landmark cases include
DPP
v. Boardman [1975] AC 421 and
P [1991] 2 AC
447.
(11)
See Criminal Evidence Act 1898, sections 1(2) and 1(3). Broadly speaking, an
accused cannot be cross-examined on his or her previous misconduct, unless he or
she asserts their own good character; casts imputations on a prosecution
witness; or gives evidence against a
co-accused.
(12)
See currently, Criminal Justice Act 1988, ss. 25 and
26.
(13)
It will be recalled that the convening of the Commission was announced on the
day of the release of the Birmingham
Six.
(14)
See Criminal Justice and Public Order Act 1994, ss. 34-37. This particular
reform was, of course,
in spite of the recommendation of the Royal
Commission that the right be maintained (see Recommendations 82 and 83 of the
Royal Commission on Criminal Justice (1993, p.
195).
(15)
See Criminal Procedure and Investigations Act
1996.
(16)
In the context of a discussion of the Court of Appeal, Nobles and Schiff (2000)
suggest that official criminal justice decisions can be informed by the
occurrence of episodic crises. They note that a key player in such crises is the
media. From such a perspective, it may be that the White Paper is symptomatic of
the latest ‘crisis’.
(17)
The proposals are informed by a fear of tactical manoeuvring on the part of
defence lawyers (see
White Paper, para. 3.46) which is not necessarily
borne out by the evidence in the Paper itself. There are echoes here of the
spectre of ‘ambush defences’, which informed the development of the
Criminal Procedure and Investigations Act 1996. Whether that was a justified
fear was doubted by Leng
(1995).
(18)
This need not be a problem if carefully managed. However, the mere grafting of
particular inquisitorial processes onto an essentially adversarial system is
bound to produce tensions unless other systemic changes take place. See
Fitzpatrick, (1999, p.
167).
(19)
The Home Secretary is quoted as having told BBC Radio 4’s Today
programme, ‘You tilt the balance [towards victims] by ensuring the
unscrupulous and the avaricious can’t act to completely dislocate the
whole of the system’ (taken from ‘Blunkett scraps double jeopardy
rule’
http://news.bbc.co.uk/hi/english/uk_politics/newsid_2132000/2132683.stm
accessed 17 July 2002, URL now corresponding to a different report on the White
Paper).
(20)
The proposed change may impact upon the ‘local’ connection with the
functioning of magistrates’ courts. Having said that, agency status for
the administration of these courts is not a new idea. It was mooted, and
rejected, following the Le Vay Scrutiny: see Home Office
(1989).
(21)
Dr. John Pugh, MP for Southport remarked on the ‘dismal history of Home
Office computer procurement’ and suggested that ‘few of us would
trust its representatives on a trip to PC World’ (
Hansard 17 July
2002, col.
296).
(22)
Though, of course, the European Convention on Human Rights does also
countenance the rights of
victims, as well as of
defendants.
(23)
The linkage is expressed thus: ‘to rebalance the criminal justice system
in favour of the victim and the community so as to reduce crime and bring more
offenders to justice’ (
White Paper, para. 1.17). On the inadequacy
of the ‘balancing’ metaphor in criminal justice, see Ashworth
(1998).