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Dáil Éireann díospóireacht -
Thursday, 19 Jul 1973

Vol. 267 No. 9

Criminal Procedure (Amendment) (No. 2) Bill, 1973: Committee and Final Stages.

Section 1 agreed to.
SECTION 2.

I move amendment No. 1:

In page 2, after line 33, to insert the following subsection:—

(2) Reasonable notice shall be given to an accused person of any amendment or correction made under this section.

The purpose of this amendment is to ensure that an accused person is made aware of any amendment or correction in the charge that can be made under this section when he is sent forward to the Circuit Court or to the Central Criminal Court for trial or sentence. The purpose of the section is to enable this amendment or correction to the charge to be made because, apparently, that cannot be made at the moment.

There is no provision in the section as it stands that this should be brought to the notice of the accused person or that he should be given some reasonable notice of it. The Minister will probably inform me that the normal practice would be to tell this to the accused. However, I believe that in a matter of this kind we should write into the legislation a requirement of this type. I think that it is particularly necessary in this section because this section applies not just to ordinary sending forward for trial on a plea of not guilty but also the cases where a man pleads guilty in the District Court but is sent forward for sentence.

The section, as it stands, provides that, if he pleads guilty to a particular charge in the District Court and is sent forward for sentence on that charge, the charge can be corrected, or amended, in or before the Circuit Court hearing and that his plea of guilty to the original charge would be taken as a plea of guilty to the corrected, or amended, charge. A man might plead guilty to a particular charge or a charge expressed in a particular way in the District Court but might not be anxious to plead guilty to the amendment of it.

He can change his plea as of right.

I am aware that he can change his plea but he may not have the change drawn to his attention. I know that the Attorney General's representatives, in the normal way, will bring any such change or amendment to the notice of an accused person; but what I am endeavouring to do is to have it written into the legislation that they have an obligation to inform the accused of any such change or amendment. If, for example, the Attorney General's representatives forget, quite genuinely, to inform the accused of the amendment that man's rights, with the amendment I have proposed, would be protected. Under the section at present if the Attorney General's representatives forgot to inform the accused of any change or amendment that man's sentence or conviction could not be upset due to the fact that they forgot to inform him. My amendment is to ensure that an accused person has full protection.

The House will have to bear in mind that many accused persons are not the most intelligent people. It is a well-known fact that the average IQ of persons in prison on conviction for criminal offences is significantly lower than the IQ of citizens generally. I feel that it is incumbent on any Legislature to spell out clearly, as this amendment does, the rights of an accused person and that, where a change in a charge against him to which he has pleaded guilty is made, that change, amendment or correction is brought to the attention of the accused so that he is fully conversant with it.

It is not an answer to say that the police, the State Solicitor or the barrister appearing for the Attorney General will normally do this. I know that they normally do this but if they overlooked this, something which is always possible, an accused person can be at a disadvantage. It is to protect the rights of the accused that I have put down this amendment which I hope the Minister will be able to accept.

I am sorry I cannot accept the amendment. If, as the Deputy says, a defect comes to be corrected, this defect is corrected, not by prosecuting counsel but by the court at the request of the prosecuting counsel and in the presence of the accused and provided that the court is satisfied that no injustice results. I am in sympathy with the Deputy's purpose in moving this amendment. My reason for not accepting it is that the amendment is not necessary in order to carry out the purpose it seeks to achieve.

Deputy O'Malley's purpose is to ensure that the accused will not be prejudiced or taken by surprise when he appears before the higher court if any change is made in the charge against him. It would be wrong if he suffered by reason of any disadvantage coming to him in this regard but there are two cases here. The first is where he waives his right to a preliminary hearing and goes forward for trial on a plea of not guilty. In this case there is an indictment. All that section 2 does is to allow the prosecution, when stating the charge on the indictment, to correct any defect on the charge which was before the District Court.

It is not the prosecution who corrects the indictment, it is the court who is responsible for the correction of it on the application of the prosecution. The court will refuse that application if an injustice is being done to the accused. Likewise, it would be impossible for this change to take place without the accused knowing. It is possible, if the accused was not legally represented, that he would not know the import or perhaps the significance of it, but the court is present and the court is constrained to hold the balance between the parties, and it does so. The court would only permit the defect to be remedied provided there was no injustice to the accused. This is written into the section.

It is parallel to the situation where there has been a preliminary examination and a return is being made in accordance with section 18 of the Criminal Procedure Act, 1967. A return under that section permits, not merely the curing of a defect in the charge, but actually permits the substitution of counts for existing counts or the insertion of totally new counts. This is a much stronger provision which is already in this particular legislation and has not worked any hardship to an accused person.

Where a person pleads guilty in the District Court and has been sent forward for sentence, in this case there is no indictment. The charge before the Circuit Court is the charge which was before the District Court. If there is a defect in it, bearing in mind that many of these charges are drafted by persons without legal training, drafted by the police, in order to do justice to both parties before the court, to the State and to the accused, it will be necessary to cure this defect.

However, the overriding safeguard is there that the defect is cured by the court on the application of the prosecution or the defence. It could work both ways, but the court must be of the opinion that no injustice results. I am satisfied that the amendment is unnecessary and that it would be inappropriate to have any statutory requirement of notice of the proposed correction. The power given is only power to correct a defect in the charge, not to change it, add to it or take from it, purely a technical defect.

Where there is a plea of guilty to the original charge if the accused so wishes he is entitled to withdraw this and enter a plea of not guilty, and he cannot be criticised for doing this. There is no inhibition whatever in doing that. Another consequence of this Bill is that legal aid is now provided at the deposition stage and at the Circuit Court stage on a plea of guilty so that it is unlikely that persons will not be represented at that stage. They will have the benefit of legal advice to advise them where an application has been made to correct a charge.

The court already has its own inherent power to ensure that the correction does not adversely affect the accused. I am satisfied that there is no danger to the rights of the accused person. I sympathise with the Deputy's motives in bringing forward this amendment but I cannot accept it because I am satisfied that it is not necessary.

Is the amendment withdrawn?

No. I propose to reply to the Minister.

If the House agreed, could we continue with this?

Does the House agree to dispose of the Criminal Procedure (Amendment) (No. 2) Bill, 1973, before we proceed to Questions?

Agreed.

I am sorry the Minister refuses to accept the amendment. I do not think his argument against it is a valid one. What he says is, I take it, a correct statement of the law and of the position. Nonetheless he does not seek to justify a situation where some reasonable notice on the lines of an amendment of this kind would not be given to an accused person. I do not think this is putting any great onus in practice on the prosecution because it is the sort of thing that would be done anyway. A great many accused persons are not represented. An accused person notified by the judge, immediately he is asked to plead, that some amendment has been made is frequently in a nervous, agitated or frightened state and, if he is notified solemnly by the judge at that particular point of time, it is very likely he will not he able to take in the import of the situation. He is asked to make up his mind on the spot. He is told: "You have already pleaded guilty in the District Court to a certain charge and the following changes and amendments have been made in that charge and, unless you want to change your plea, your plea of ‘guilty' in the District Court will be taken as a plea of ‘guilty' here in the Circuit Court."

But it will not be a new charge; it will be a corrected charge. The nature of the charge will not be changed. The charge will simply be corrected.

When I use the word "amendment" I am using the word that appears in the side heading of the Bill. I know it does not form part of the actual text of the Bill itself, but it is an indication, and usually an accurate one, of the contents and the purpose of the section. The very first words are "Amendment of charge".

But, as the Deputy says, that is not part of the Bill.

But it is an indication of the nature of the contents of the Bill and, when I refer to an amendment of the charge, I do not think I am unfairly paraphrasing what the section intends to do.

The section quite clearly calls it a "correction".

It is curious that the words "Amendment of charge" are used in the description of the section and, in the index on the front of the Bill, under the heading "Arrangement of Sections", where each section is described, the words "Amendment of charge" also appear. This amendment merely seeks to give an assurance to an accused person that he cannot or will not be taken by surprise in any such amendment or correction. I do not think it adds any great onus to the prosecution because I think it is a matter of practice, to say nothing of a matter of courtesy, to notify an accused person or his solicitor some reasonable time beforehand of any intention either to amend or correct. I do not think it would make any difficulty for the prosecution and it would be only fair to the accused. One must remember that this procedure of a man signing a plea in the District Court is comparatively new. It has been there only since the parent Act of 1967, some six years ago. The rights of an accused person should be guaranteed as fully as this House can guarantee them. As I say, this amendment does not put an undue onus on the prosecution. This is something that would normally be done anyway, but I want the House to spell out that this in fact will be the duty of the prosecution.

Amendment put.
The Committee divided: Tá, 47; Níl, 52.

  • Ahern, Liam.
  • Allen, Lorcan.
  • Barrett, Sylvester.
  • Brady, Philip A.
  • Breslin, Cormac.
  • Briscoe, Ben.
  • Browne, Seán.
  • Brugha, Ruairí.
  • Burke, Raphael P.
  • Callanan, John.
  • Calleary, Seán.
  • Carter, Frank.
  • Colley, George.
  • Connolly, Gerard.
  • Cronin, Jerry.
  • Davern, Noel.
  • de Valera, Vivion.
  • Fahey, Jackie.
  • Farrell, Joseph.
  • Faulkner, Pádraig.
  • Fitzgerald, Gene.
  • French, Seán.
  • Gallagher, Denis.
  • Geoghegan, John.
  • Gibbons, Hugh.
  • Gibbons, James.
  • Healy, Augustine A.
  • Herbert, Michael.
  • Hussey, Thomas.
  • Kenneally, William.
  • Kitt, Michael F.
  • Lalor, Patrick J.
  • Lemass, Noel T.
  • Leonard, James.
  • Loughnane, William.
  • Lynch, Celia.
  • McEllistrim, Thomas.
  • Murphy, Ciarán.
  • Nolan, Thomas.
  • O'Connor, Timothy.
  • O'Malley, Desmond.
  • Power, Patrick.
  • Smith, Patrick.
  • Timmons, Eugene.
  • Walsh, Seán.
  • Wilson, John P.
  • Wyse, Pearse.

Níl

  • Barry, Richard.
  • Bermingham, Joseph.
  • Bruton, John.
  • Burke, Joan T.
  • Clinton, Mark A.
  • Cluskey, Frank.
  • Conlan, John F.
  • Coogan, Fintan.
  • Cooney, Patrick M.
  • Donnellan, John.
  • Dunne, Thomas.
  • Enright, Thomas.
  • Finn, Martin.
  • Fitzpatrick, Tom (Cavan).
  • Flanagan, Oliver J.
  • Gilhawley, Eugene.
  • Governey, Desmond.
  • Griffin, Brendan.
  • Harte, Patrick D.
  • Hegarty, Patrick.
  • Hogan O'Higgins, Brigid.
  • Jones, Denis F.
  • Kelly, John.
  • Kenny, Henry.
  • Kyne, Thomas A.
  • Lynch, Gerard.
  • Corish, Brendan.
  • Costello, Declan.
  • Crotty, Kieran.
  • Cruise-O'Brien, Conor.
  • Desmond, Barry.
  • Desmond, Eileen.
  • Dockrell, Henry P.
  • Dockrell, Maurice.
  • Donegan, Patrick S.
  • McDonald, Charles B.
  • McLaughlin, Joseph.
  • McMahon, Larry.
  • Malone, Patrick.
  • Murphy, Michael P.
  • O'Connell, John.
  • O'Donnell, Tom.
  • O'Leary, Michael.
  • Pattison, Seamus.
  • Reynolds, Patrick J.
  • Ryan, John J.
  • Ryan, Richie.
  • Spring, Dan.
  • Staunton, Myles.
  • Thornley, David.
  • Timmins, Godfrey.
  • White, James.
Tellers:— Tá, Deputies Browne and Healy; Níl, Deputies Kelly and B. Desmond.
Amendment declared lost.
Question—"That section 2 stand part of the Bill"—put and agreed to.
Section 3 agreed to.
SECTION 4.
Question proposed: "That section 4 stand part of the Bill."

In relation to this section, the Deputy might notice that the "(No. 2)" is missing out of it. The anticipation is that when it becomes law the "(No. 2)" will be no longer applicable as the Bill before the Seanad of the same title which caused "(No. 2)" to be inserted in the Title of this Bill will fall.

I can follow that. Is there not a deficiency in section 4 inasmuch as this is an amendment of the Act of 1967, which uses the terminology of the Act of 1967? There should be a joint citation of the two Acts that they be read as one. Otherwise, it would be necessary in this Bill to re-define all the terms. It is the normal procedure in a Bill where there is an amendment of a Principal Act to provide that the two will be cited together.

I do not think so. I do not think that it is necessary to have a collective citation in this case. What has been amended are very specific sections of the 1967 Act. In reading this Act, there cannot be any doubt or difficulty as to what it refers. There would be no question of this Act being read on its own, except in regard to section 3 in respect of legal aid. That also applies to the amendment of the 1967 Act. The 1967 Act and this Act clearly have to be read together. The fact that they are not cited as one does not make any difference.

I agree with the Minister that they clearly have to be read together. That surely is the point, that if they have to be read together it should be stated here that they are collectively cited, if that is the correct phrase. The purpose of doing that—and it is done, as the Minister knows, in nearly every amending Act—is to avoid the rather laborious necessity of re-defining all the terms. There are many definitions in the 1967 Act. There are meanings given to words in that Act. They are the same meanings, as the Minister says, as are given here. Section 4 seems to have a defect inasmuch as it omits the normal thing which would be a subsection (2) in section 4 to say that "this Act and the principal Act shall be cited together as the Criminal Procedure Acts, 1967 and 1973".

There is no need.

Is it not usual to cite amending Acts for reference purposes, even if only for convenience of reference? Is it not usual to put in a citation, as Deputy O'Malley suggests? What possible objection is there to putting in such a normal citation clause? I can understand it being overlooked, but why should the Minister object to including a citation clause? To say that it is unnecessary is not sufficient when it is practically universal practice. Maybe I am wrong in that, but that is the impression I have.

I do not think it is the universal practice. The Deputy has much more experience than I have in this. We get the collective citation where we are involved in legislation going back perhaps 30 years. One example I can readily think of is the Housing Acts, and the Housing Loans and Grants Acts and other Acts in relation to houses. In certain cases these are to be cited and read together. Different titles are used over 30 years. For ease of interpretation, the collective citation makes very clear that they are all to be read as one. In this case we are amending just one particular Act. There should be no difficulty whatever on the part of a person reading this Act to know that it refers only to the Act of 1967.

The Ministers and Secretaries Act which we had here, if my recollection serves me, was also a continuation of the one Act adding new Departments and the citation was in that. It was not a collection of different Acts.

I did not read that Act.

The Minister's statement that the only Act that this Bill amends is the 1967 Act is not right. Section 3 amends specifically in two places the Criminal Justice (Legal Aid) Act, 1962. It would appear that there should be a citation separately for that. One frequently sees that where two different sets of Acts are amended the different parts of the Bill are cited separately. I will give an instance of this, although I have not got it here. The Bill which is next on the Order Paper today is the Oireachtas (Allowances to Members) and Ministerial and Parliamentary Offices (Amendments) Bill, 1973. If the Minister looks at that he will see that Part II of the Bill, which relates to Oireachtas allowances, is separatedly cited collectively with the Oireachtas (Allowances to Members) Acts, and Part III which relates to the salaries of Ministers, Parliamentary Secretaries and so on, is separately cited collectively with the Ministerial and Parliamentary Offices Acts. That is as clear an example as I can give of the practice hitherto, and of the necessity for that practice. Otherwise, two whole separate series of Acts would conflict with one another. The definitions in one set of Acts might not necessarily be the same as the definitions in another.

The situation in this Bill is not simply, as the Minister says, that the Criminal Procedure Act, 1967, is being amended. There is a significant amendment to the Criminal Justice (Legal Aid) Act, 1962. These matters should be rectified and clarified before the Bill leaves this House because otherwise people afterwards who are endeavouring to put these two separate sets of provisions into practice may find themselves in a lot of difficulties that were not intended by the Minister or by the House.

This Bill does not amend the Criminal Justice (Legal Aid) Act. It extends that Act to cover proceedings under the Criminal Procedure Act, 1967, by amending the 1967 Act. If the Deputy reads section 3 again, he will see that the Criminal Justice (Legal Aid) Act, 1962, is not amended. The 1967 Act is amended by permitting proceedings under it to have the benefit of the provisions already in force in the legislation providing for legal aid.

The whole point of a citation is that it is a formal end section and it is to ensure that persons reading a statute will not become confused and there will not be any difficulty as between one statute and another. This is a short three-section Bill referring to the amendment of one Act, the 1967 Act. There is no point in wasting the time of the House any longer. If the Deputy gives us the wording we can put in another subsection there. It does not mean a damn thing.

The Minister seems to be unduly agitated about a matter that I am simply trying to be helpful on. I have pointed out what appears on the face of it to be an omission which is an unusual omission.

First of all, it is not unusual and it leads to no difficulty.

I feel it is my duty as a Member of the Opposition in this House to draw the attention of the House to matters such as this. Indeed, if that had been done by the then Opposition on the principal Act, the 1967 Act, the need for this Bill would never have arisen. There was an error made there. It was a genuine error. There could equally easily be a genuine error here. I felt it my duty to point out that there is this unusual circumstance. I do not think the Minister is justified in becoming heated and annoyed about my doing so. I feel it is my duty not just to the House but to the public at large to do so and I make no apology for doing so.

I would ask the Deputy to give us the wording of what he wants added to the wording of section 4.

I have given it. We could do it on Report Stage.

Question put and agreed to.
Title agreed to.
Bill reported without amendment and received for final consideration.
Question proposed: "That the Bill do now pass."

I made a suggestion to which the Minister seemed to agree. I do not want to hold up the Bill unduly. If the Minister is agreeable, I presume he could make the amendment in the Seanad.

If we amend the Bill in the Seanad, it has to come back to the Dáil. As the Dáil will not be sitting after next week, it will not be possible to bring the Bill back to the Dáil. As the Deputy knows this is an urgent Bill to cure a serious defect in the criminal procedure. Would the Deputy agree to this wording? "This Act may be cited as the Criminal Procedure (Amendment) Act, 1973" and then a further heading: "This Act may be cited as one with the Criminal Procedure Act, 1967."

It is very hard to say what the precise terminology should be unless you have a chance to sit down and study it. Would the Minister not agree to do it in the Seanad? He has the advantage of draftsmen and advisers. I am expected to do it here on the spur of the moment.

I do not mind doing it in the Seanad but if it is done there and this House is in recess when it gets out of the Seanad the Bill will not be law until next session and there are people, as the Deputy knows, with rights of appeal attenuated because of the defect in the 1967 Act.

In the light of that, I think I better let it go although I think it is no harm that I should put it on record. I think the Minister would agree with me when I say that it would probably be more desirable if the amendment were made. Due to the fact that the House is apparently rising next week and the Minister cannot come back with it, I had better let it go.

Question put and agreed to.
Barr
Roinn