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You are here: BAILII >> Databases >> England and Wales High Court (Administrative Court) Decisions >> M (A Minor) v Independent Appeal Panel Of London Borough Of Wandsworth & Anor [2004] EWHC 1239 (Admin) (28 May 2004) URL: http://www.bailii.org/ew/cases/EWHC/Admin/2004/1239.html Cite as: [2004] EWHC 1239 (Admin) |
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QUEEN'S BENCH DIVISION
ADMINISTRATIVE COURT
Strand, London, WC2A 2LL |
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B e f o r e :
____________________
M (A Minor who proceeds through his mother and litigation friend SM) |
Claimant |
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- and - |
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THE INDEPENDENT APPEAL PANEL OF THE LONDON BOROUGH OF WANDSWORTH THE GOVERNING BODY OF NIGHTINGALE SCHOOL |
Defendants (1) (2) |
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Smith Bernal Wordwave Limited, 190 Fleet Street
London EC4A 2AG
Tel No: 020 7421 4040, Fax No: 020 7831 8838
Official Shorthand Writers to the Court)
Elisabeth Laing (instructed by D.M.H Solicitor) for the Defendant
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Crown Copyright ©
THE HONOURABLE MR JUSTICE OWEN :
M's exclusion from Nightingale School arose out of an incident on 7th October 2003, when he was found to be in possession of a knife on the school premises. According to an incident report made by a secretary at the school, Siobhan Burford, at about 3.00 pm M came into the reception area asking if Ms Burford could telephone his mother as he had forgotten his keys. Whilst using the telephone, Ms Burford noticed that M was "… opening up what I could see was a knife." She asked him to give it to her, but he quickly closed it and denied having it. She then told him that she would report the matter to the Head Teacher, Mr Murphy. M then said that he was going to throw the knife out of the reception area, and pretended to do so. Ms Burford again asked him to hand over the knife, but he repeated that he had thrown it out of the door to the reception area. She recorded that he then became angry and said that he was going to tell Mr Murphy about the knife.
"… the decision to exclude M has not been taken lightly. M has been excluded permanently for bringing a knife onto the school site. Please see attached report."
The letter also explained that the School Governors Discipline Committee (The 'Discipline Committee') would need to consider the exclusion.
"… I found the knife in question on school premises, under the stairs nearest to the school office. When I saw it I picked it up with the intention of handing it to Mr Murphy."
The statement later continued –
"Siobhan (Ms Burford) saw the knife and got upset with me, she said I would be excluded from school for having a knife, there was a parent sitting in the waiting are, who was also witness. I told Siobhan that I would give the knife to Vivien (Ms Wood) which I did. Vivien then made me give the knife to Siobhan.
On reflection I should have given the knife to Siobhan straight away, but she made me upset about being excluded from school. I would never have hurt anyone; it was just a silly mistake."
"The reasons for the Committee's decision are as follows:
In view of the school's Behaviour Management Policy which clearly states that being in possession of a weapon will result in a permanent exclusion, the Disciplinary [sic] Committee of the Governors upheld the Head Teacher's decision to permanently exclude M. We very much hope you are able to find alternative satisfactory provision for M's education."
"Before arriving at their final decision on your appeal, the Panel firstly considered whether M was responsible for the actions that had resulted in his permanent exclusion from the School. The Panel was satisfied that M had been responsible for the incident, outlined in the case papers, namely that he had in his possession, on School premises, a knife. The Panel noted that, in evidence, M did not deny he had a knife, although he challenged that it was his knife and that he had brought it into school, and stated that he was in the process of handing the knife to a School representative.
The Panel then had to consider whether permanent exclusion was a reasonable response to M's actions. In so doing, the Panel took into account the Department for Education and Skills … Guidance, and related Circulars. The Panel also took into account the Schools' published Behaviour Management Policy which states:-
"The use of Exclusion will be used if:
… being in possession of a weapon (this will result in an immediate permanent exclusion)".
In reaching a decision on your appeal the Panel were of the view that consideration had to be given to the interests of the School, not only in terms of the need to establish and maintain discipline, but also to safeguard the welfare of other pupils and members of staff. The Panel noted that M had been given fixed –term exclusions on previous occasions.
Taking account of all the related factors the Panel decided, unanimously, that the decision of the School's Disciplinary Panel was the correct one and would be upheld."
Section 52 of the Education Act 2002 provides that:
"(1) A Head Teacher of a maintained school may exclude a pupil from the school for a fixed period or permanently.
(2) …
(3) Regulations shall make provision –
(a) Requiring prescribed persons to be given precribed information relating to any exclusion under sub-section (1) or (2),
(b) Requiring the responsible body, in prescribed cases, to consider whether the pupil should be reinstated,
(c) Requiring a local Education Authority to make arrangements for enabling a prescribed person to appeal, in any prescribed case, to a panel constituted in accordance with the regulations against any decision of the responsible body not to reinstate the pupil, and
(d) As to the procedure on appeals.
(4) Regulations under this section may also make provision –
(a) …
(b) Requiring a person or body exercising functions under sub-section (1) or (2) or under the Regulations to have regard to any guidance given from time to time … by the Secretary of State …"
"14. The decision of an Appeal Panel and the grounds on which it is made shall –
(a) Be communicated by the Panel in writing to the relevant person, the Local Education Authority, the Governing Body and the Head Teacher, and
b) Be so communicated by the end of the second working day after the conclusion of the Hearing of the appeal."
"1. Introduction
1.1 A decision to exclude a pupil should be taken only:
(a) in response to serious breaches of the school's behaviour policies: and
(b) if allowing the pupil to remain in school would seriously harm the education or welfare of the pupil or others in the school.
1.2 Only the Head Teacher or teacher in charge of a PRU (or, in the absence of the Head Teacher or teacher in charge, the most senior teacher who is acting in that role) can exclude a pupil.
1.3 A decision to exclude a child permanently is a serious one. It will usually be the final step in a process for dealing with disciplinary offences following a wide range of other strategies, which have been tried without success. It is an acknowledgement by the school that it has exhausted all available strategies for dealing with the child and should normally be used as the last resort.
1.4 There will however be exceptional circumstances where, in the Head Teacher's judgment it is appropriate to permanently exclude the child for the first or 'one off' offence. These might include:
(a) Serious actual or threatened violence against another pupil or a member of staff.
(b) Sexual abuse or assault.
(c) Supplying an illegal drug.
(d) Carrying an offensive weapon.
… … …
1.5 These instances are not exhaustive, but indicate the severity of such offences and the fact that such behaviour can affect the discipline and well-being of the school community.
1.6 In cases where a Head Teacher has permanently excluded a pupil for:
(a) One of the above offences or
(b) Persistent or defiant misbehaviour including bullying (which would include racist or homophobic bullying) or repeated possession and/or use of an illegal drug on school premises, the Secretary of State would not normally expect the Governors' Discipline Committee or an Independent Appeal Panel to reinstate the pupil."
By the application for judicial review M seeks to challenge both the decisions by the Discipline Committee and by the IAP. On the day before the hearing the solicitors acting for M issued an application to join the Head Teacher and to extend the challenge to his initial decision to exclude. But the application was not served on the Head Teacher and those acting for the first and second defendant had no instructions to act on his behalf. In those circumstances Miss Brown, who appeared for M, withdrew the application to join the Head Teacher.
"43. If, of course, in any particular case the prior procedural unfairness can be shown in some way to have tainted the subsequent appeal process, then the appeal decision itself will necessarily be unsustainable. As Lord Wilberforce said in Kelvin v Carr [1990] AC 574, 593 … there may be cases were ' the defect is so flagrant the consequences so severe, that the most perfect of appeals or re-hearings will not be sufficient to produce a just result'. No doubt Lord Keith had that passage in mind where he said in Lloyd v McMahon [1987] AC 625, 697 … that 'there may be cases where the procedural defect is so gross, and the prejudice suffered by the appellant so extreme, that it would be appropriate to quash (the first-tier) decision on that ground'. Save in circumstances such as those, however, I for my part find it difficult to think of any case in which a decision reached upon and otherwise fairly conducted appeal by an independent tribunal following a full merits hearing should be impugnable by reference to unfairness at an earlier stage …"
At paragraph 45 he went on to hold that the claimants' rights to a fair determination of their respective cases against permanent exclusion were satisfied in each case by the IAP hearing and determination.
The re-drafted ground of challenge to the decision by the IAP is that:
"The Independent Appeal Panel decided the issue solely on the basis of a breach of School Behaviour Policy without regard to whether the breach was of such seriousness that permanent exclusion was the appropriate sanction. In so doing it misdirected itself in law. "
"If we had felt that M had found the knife and was on his way to hand it in, we would have overruled the permanent exclusion."
"It would have been unreasonable for permanent exclusion to have been used if M was behaving responsibly. Most of our discussions concentrated on this issue. However we were sure that M was not planning to hand in the knife and that he did not do so when first asked."
MR JUSTICE OWEN: The application is dismissed for the reasons set out in the judgment that I have handed down. Yes, Ms Brown.
MS BROWN: My Lord, the first thing I would like to ask for is permission, and I request leave to appeal.
MR JUSTICE OWEN: And what is the issue of law on which you would wish to found that application?
MS BROWN: My Lord, there are four essential matters which I seek permission in relation to. First of all it concerns your Lordship's decision in relation to the approach which was taken concerning R(DR) v Head Teacher of St George's Catholic School and the consequence of that being that we were not invited to submit or make submissions in relation to the decision that was made by the governors.
My Lord, our position is that following the decision in DR, there is still some concern as to how the court should properly approach cases where there are challenges made to successive decisions on the basis that the IAP decision may be quashed, but if there were procedural, or something wrong in a strict legal sense with the decision taken by the governors, it would not be appropriate for the court also to quash that decision. Of course, it may be also possible to quash the head teacher's decision, and it seems to me that looking at the IAP decision is the first stage in considering what it is that needs to be quashed.
The second matter is in relation to the admission of the evidence that was admitted that had been provided by the defendant's witnesses.
Thirdly, my Lord, there is appeal in relation to the judgment which refers to the submissions that had been made on the preliminary issue, having essentially been incorporated as part of the claimant's case. My Lord, that was certainly not the intention of making those submissions, and those submissions were directed at showing why the statements should not be admitted. It is not necessary to admit the evidence to deal with the submission why they should not be admitted.
Finally, there is a point in relation to the handwritten notes of Mr C. Your Lordship will recall perhaps that at the very end of that note there was a handwritten annotation which said there are no special circumstances which justify overturning the decision to exclude. Those notes have been disclosed to us very shortly before the hearing and submissions were made that this indicated that the IAP had applied the wrong legal test in considering whether the decision to exclude should be upheld or otherwise. And further, there was concern that this handwritten note had not been transcribed into the typed version of the notes and there was no explanation for the omission.
MR JUSTICE OWEN: Yes, Ms Laing, any submission you want to make as to any of those matters?
MS LAING: My overall submission in relation to all four points is that those are very much questions which turn on the facts of this particular case, and in my submission they do not raise discrete legal issues to which it would be appropriate to give permission to appeal. Just take for example the first point, the DR point. In paragraph 21 of your Lordship's judgment your Lordship deals with that point, and records Ms Brown's stance in relation in that she could not distinguish DR. I take that merely as an example. This is not an appropriate case in which to give permission.
MR JUSTICE OWEN: Thank you very much. In my judgment there are no arguable grounds of appeal on any point of law and so, Ms Brown, you must seek your leave elsewhere.
MS BROWN: My Lord.
MS LAING: The only other matter is a question of costs. I would submit that this is a case in which it is appropriate to make the normal order, in other words that the claimant pay the defendant's costs. I understand that the claimant has LSC funding, so we ask for a determination of the claimant's liability for payment of such costs being postponed pending further application.
MR JUSTICE OWEN: Yes. Ms Brown?
MS BROWN: I would submit that this is not a case where it is appropriate for the normal order to be made. It is clear that when the grant of permission was raised that the decision had not been taken appropriately, and thereafter it was necessary for the defendants to go to some lengths to advise the court as to what had happened at the material time. In those circumstances we would say that it was entirely appropriate the application be brought, and notwithstanding the fact that it was unsuccessful, it would not be appropriate for an order to be made.
MR JUSTICE OWEN: Yes, thank you very much. It is, I suspect, going to be an entirely academic point, but the application having failed, the appropriate order for costs is the one which is sought by Ms Laing for the defendant. There will be an order that the claimant pay the defendant's costs, but that will be subject to the usual proviso in the case of a claimant whose claim has been funded by the Legal Services Commission.
MS BROWN: And the final matter, my Lord, is that we would seek Legal Aid Assessment.
MR JUSTICE OWEN: You may have that, of course. Thank you both very much for your assistance.
MS LAING: Before we go, can I just check that your Lordship did receive the suggested corrections.
MR JUSTICE OWEN: Yes, I did, thank you very much. They have been embodied.