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You are here: BAILII >> Databases >> England and Wales Court of Appeal (Civil Division) Decisions >> Haase) R (on the application of) v Independent Adjudicator & Anor [2008] EWCA Civ 1089 (14 October 2008) URL: http://www.bailii.org/ew/cases/EWCA/Civ/2008/1089.html Cite as: [2008] UKHRR 1260, [2009] ACD 14, [2009] QB 550, [2009] HRLR 2, [2008] EWCA Civ 1089, [2009] 2 WLR 1004 |
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COURT OF APPEAL (CIVIL DIVISION)
ON APPEAL FROM THE QUEEN'S BENCH DIVISION
ADMINISTRATIVE COURT
Mr Justice Stanley Burnton
Strand, London, WC2A 2LL |
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B e f o r e :
LORD JUSTICE SCOTT BAKER
and
LORD JUSTICE RICHARDS
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The Queen (on the application of John Haase) |
Claimant/ Appellant |
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- and - |
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Independent Adjudicator - and - Secretary of State for Justice |
Defendant Interested Party/ Respondent |
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David Perry QC and Sam Grodzinski (instructed by The Treasury Solicitor) for the Respondent
The Defendant did not appear and was not represented
Hearing date : 28 July 2008
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Crown Copyright ©
Lord Justice Richards :
The facts
"3. On 14th October 2004, the Claimant was sentenced to 14 years' imprisonment. On 30th September 2005, he arrived at HM Prison Full Sutton. On 25th January 2006, Prison Officer Peck, acting under the Prison Governor's authority and in accordance with section 16A of the Prison Act 1952 and Prison Rule 50, required the Claimant to provide a sample of urine for the purpose of testing for the presence of a controlled drug. The Claimant refused, and was charged with disobeying a lawful order. The adjudication was opened by a governor on 26th January 2006, and later referred for hearing before an Independent Adjudicator.
4. The Claimant instructed solicitors to represent him before the Independent Adjudicator. On 7th April 2006, the Claimant appeared before the Independent Adjudicator, District Judge Nuttall, charged with the offence of disobeying a lawful order. He contested the charge. The prosecution of the Claimant was essentially conducted by the reporting Prison Officer, Officer Peck. The Claimant's solicitors sought to raise two defences. They contended that the Claimant was unfit to attend for a drugs test when the order was given. In addition, they contended that the order was unlawful because the Claimant was not informed that he would be charged if he did not obey the order.
5. Officer Peck and the Claimant gave evidence in the course of the adjudication. The Claimant's evidence was inconsistent with that of Officer Peck. In particular, the Claimant said (contrary to the evidence of Officer Peck) that he was not informed that he would be charged if he did not obey the order.
6. The Independent Adjudicator accepted the evidence of Officer Peck. He rejected the evidence of the Claimant that supported his defence. As a consequence he found the Claimant guilty. He was sentenced to serve 21 additional days."
The claimant's case
The judgment in R v Stow
"18. Lieutenant Commander Towler emphasises that what is required by Article 6 is that the tribunal be independent and impartial. It is the tribunal which determines the innocence or guilt of the accused. The Prosecuting Authority is party to the proceedings before the tribunal but is not itself part of the tribunal which determines the innocence or guilt of the accused. Consequently the Prosecuting Authority is not obliged to attain independence to the same extent as the tribunal itself [emphasis added]. The respondent submits that there are sufficient guarantees to ensure that the Prosecuting Authority is sufficiently independent and impartial to prosecute cases fairly and without interference from outside bodies. It is also submitted that these guarantees permit the Prosecuting Authority to participate in courts-martial in a way that provides the appellant with a hearing which, viewed as a whole, satisfied Article 6."
"31. None of this is surprising. It is the independence and impartiality of those involved in the decision-making process which is fundamental to a fair trial. Having said that, however, this court notes that the Strasbourg court has in several of these cases considered the position of the prosecutor when examining the fairness of the court-martial. Thus in Cooper, it assessed the independence and impartiality of the bodies involved in the proceedings prior to the court-martial hearing, including the Royal Air Force Prosecuting Authority. Similarly, in Grieves, a naval court-martial case, it was prepared to look at the position of the naval Prosecuting Authority. Consequently, while the independence and impartiality of the tribunal members and the judge-advocate are of fundamental importance, it seems to us that the Strasbourg jurisprudence does require attention to be paid, when considering Article 6(1), to the extent to which those attributes are to be found in the Prosecuting Authority.
32. We are bound by section 2(1) of the Human Rights Act, 1998 to take into account decisions of the European Court of Human Rights and in any event our own jurisprudence recognises the importance of integrity on the part of the prosecutor. In his foreword to the 2002 guidelines for prosecution advocates, the Lord Chief Justice, Lord Woolf, refers to the prosecution advocate as 'a cornerstone of an open and fair criminal justice system', and the Code for Crown Prosecutors, paragraph 2.2 states:
'Crown Prosecutors must be fair and independent and objective …. They must not be affected by improper or undue pressure from any source.'
They are also required to act in the interests of justice. The reality is that a prosecutor has the ability to influence and even mislead the court. Consequently, we accept that his independence and impartiality are matters to be considered when assessing whether or not there has been proper compliance with Article 6(1)."
"39. We have not found this an easy case to determine. There were undoubted safeguards in existence, as set out earlier in this judgment. Certainly the Prosecuting Authority should [original emphasis] have acted independently and impartially and there is no evidence that he did not. But merely because he was under such an obligation is not enough. He has to be in such a position that an objective observer would regard him as freed from potential pressure in his decision-making. Given the system of reporting on him which existed at that time within the Royal Navy, we have concluded that such an observer would not have seen him as sufficiently protected from such pressure. That then has to be combined with the other factors referred to, namely his rank and scope for further promotion within the service. When we put all those together, we are forced to conclude that the naval Prosecuting Authority at the time of this court-martial did not enjoy necessary safeguards of his independence and impartiality. We are glad to know that the shortcomings which we have referred to have since been removed.
40. While the Prosecuting Authority may not enjoy such a pivotal role as the Judge Advocate, his independence and impartiality is of great importance to a fair trial. It seems to this court that the court-martial of the appellant cannot, in these circumstances, be held to have observed the appellant's rights under Article 6(1). If his trial was not fair, then in our judgment his conviction cannot be regarded as safe."
The Strasbourg case-law
"113. The Prosecuting Authority is appointed by the Queen and is legally qualified. Members of the staff are legally qualified and are employed exclusively on prosecution duties. The decision to prosecute is made on the basis of legal criteria similar to those applied by the Crown Prosecution Service and in accordance with the Codes of Conduct of the respective branches of the legal profession. While the Prosecuting Authority is also the RAF Director of Legal Services, he is answerable to the Attorney-General only, and is not reported upon within the service on his prosecution duties. There being no chain of command or service connection between the Higher and Prosecuting Authorities either claimed or apparent, any seniority in rank of the Higher Authority over the Prosecuting Authority would not be sufficient to conclude, as the applicant suggests, that the latter is 'likely to' be influenced by the former."
"115. For these reasons, the Grand Chamber finds that the applicant's submissions concerning these three bodies do not cast any doubt on the Chamber's findings in the Morris case as to the genuineness of the separation of the prosecuting, convening and adjudicating roles in the court-martial process under the 1996 Act. The Grand Chamber further considers that there is no reason to doubt the independence of the decision-making of those bodies from chain of command, rank or other service influence."
Discussion
"33. … Mr Perry pointed out that, surprisingly, the Court in Stow did not refer to, and therefore it appears did not appreciate or consider, the impact of its decision on private prosecutions. The right to bring a private prosecution has traditionally been regarded as an important constitutional right, although more recently its value has been less highly regarded ….
34. It would be difficult to see how an individual could bring a private prosecution if the prosecutor is required to be independent. At the very least, he would have to instruct counsel or a solicitor; and instructing a solicitor from a firm whom he instructed on other matters would presumably result in a lack of the necessary independence, since the solicitor might be concerned that his conduct of the prosecution would affect his or his firm's instructions in other matters. The position of organisations such as the NSPCC and the RSPCA, who are entitled to and do bring prosecutions, would also be difficult. What of an inspector of either of those organisations who had witnessed child or animal abuse, and who might otherwise act as prosecuting officer in a magistrates' court? How can his (or her) position be distinguished from that of the prosecutor in Stow? It is, I think, no answer to suggest that the distinction is that only public authorities are subject to the provisions of the Human Rights Act 1998 and Convention duties. The duty to ensure that trials of criminal proceedings are fair is that of the State, and cannot depend on the identity of a particular prosecutor, any more than it can be said that there is no such duty in civil proceedings between private parties.
35. There are public authorities too whose prosecutions would be affected by the requirement of independence on the part of the prosecutor: local authorities, whose inspectors may also act as prosecutors in fair trading cases, and whose planning officers may do so in planning enforcement cases …."
"44. The offences considered by Independent Adjudicators are at the less serious end of the spectrum of gravity More serious offences, which may involve greater punishment than 42 additional days, are referred to the ordinary criminal courts. Courts-martial may determine far more serious offences. Disciplinary offences should be dealt with speedily. Prison officers are expected to act fairly and with integrity, and their duty to do so in the context of proceedings before Independent Adjudicators is required by the Prison Disciplinary Manual Adjudications. Prisoners are entitled to legal representation. The Independent Adjudicator himself is under an express duty to act fairly and justly, and to conduct an impartial inquiry. The proceedings are inquisitorial rather than adversarial. There is provision for disclosure of the identity of witnesses and of statements. If a prisoner defendant or his legal representative considers that there is other documentation that should be disclosed, they can seek a direction from the Independent Adjudicator. These considerations, together with those referred to by the European Court, distinguish this case from the court-martial considered in Stow, and lead me to conclude that fairness does not require an independent prosecutor in such cases, and that the proceedings in the present case were fair."
Lord Justice Scott Baker :
Sir Anthony Clarke MR :