family law, legal aid, access to justice, funding, HMCTS, Re D (A Child) (No 2) [2015] EWFC 2, Re K and H (Children: Unrepresented Father: Cross-Examination of Child) [2015] EWFC 1
Sources of state
funding in the family courts
Two cases have been published already this New Year from
different parts of the meagre family courts state funding scene (for a review
of that scene see ‘State funding for family proceedings: Part 3: Sources of
family proceedings funding’
[2014] Fam Law 1745 by David Burrows). Each case
deals with different funding sources.
Re K
and H raises the point as in the context of whether HMCTS should fund the
taking of evidence from a vulnerable witness (and see
Q v Q; Re B; Re C
(Private Law: Public Funding) [2014] EWFC 31, [2015] 1 FLR (forthcoming and reported at
[2014] Fam Law 1398, Sir James Munby P). The
legal aid question which the judge addressed was largely a cul-de-sac. The
other case – known as
Re D (No 2)
it has had some notoriety, already – raised a relatively simple legal aid
means and merits test issue. (There had been Human Rights Act 1998
jurisdiction question which seems largely – and unaccountably – to have
dissipated:
Re DE (Child under Care Order: Injunction under Human
Rights Act 1998) [2014] EWFC 6, [2015] 1 FLR (forthcoming and
reported at
[2014] Fam Law 1230, Baker J).
The 2015 version I have of
Re D is entitled
Re D
(A Child) (No 2) [2015] EWFC 2, [2015] 1 FLR (forthcoming), Sir James Munby P; but is at
least the fifth published outing for that case (though perhaps only the third
for Sir James). The father now has a legal aid certificate with a contribution
(nothing particularly unusual in that); and his case – a little unusual in
itself (Children Act 1989, s 39 (discharge of a care order)) – will
be dealt with him and the mother of their child being represented.
The short point perhaps was one for Sir James to raise
quietly with the Ministry of Justice behind the scenes (and other concerned
bodies such as Resolution could do the same). There is fairly obviously a
lacuna in the system. Its remedying would be a slight adjustment by delegated
legislation. Three high profile hearings before Sir James in as many months,
with 15 or so lawyers per time, were surely not necessary?
Vulnerable witness
evidence
By contrast the ‘Y’ evidence case – otherwise
Re K and H – should represent a high
profile aspect of our family court scene. The information – ‘evidence’ – of
children, as one category of a number of ‘vulnerable witnesses’, was one of the
consultation projects which was under way as summer 2014 started. In
Re K and H (Children: Unrepresented Father:
Cross-Examination of Child) [2015] EWFC 1, [2015] 1 FLR (forthcoming), His
Honour Judge Bellamy sitting as a Deputy High Court judge in the Family Court,
this so important child law subject has surfaced in a practical context. In a
fine assessment of the law this truly learned judge has explained the
circumstances in which he believes that a child witness should not be
cross-examined on fact by her adult alleged abuser (para [43]); and why and
when this should not be by the court (para [32]; and see Matrimonial and Family
Proceedings Act 1984 (the 1984 Act), s 31G(6)).
In the process the important ‘vulnerable witness’ debate got
slightly lost in a long discussion of legal aid issues which should have been
only tangential to Judge Bellamy’s decision (on and off throughout paras [15]–[55]).
The issue in this case – surely? – is who should assist the court (as the
Attorney-General did in
H v L and R
[2006] EWHC 3099 (Fam),
[2007] 2 FLR 162 Roderic Wood J, by providing and
advocate to the court under
Attorney General’s Memorandum of 19 December 2001 (text available in eg
Family Court Practice at p 2869)
where a vulnerable witness is to give evidence and where s 31G(6) applies.
The summer blaze of
family court ‘consultations’ – see eg my
‘Consultations in progress per President’s 13th fenestral musing’ (17 August 2014); included, amongst three consultation exercises, that of the Vulnerable Witness
Working Group: see
‘Interim Report of the Children and Vulnerable Witnesses Working Group – 31 July 2014’. The aim of this group was to propose (para 2)
‘a new mandatory (
sic) rule… supplemented by practice directions (PD) and guidance
approved by the President.’)
My response was submitted on 5 October 2014 (yet to be acknowledged by its addressee the Courts and Judiciary).
Re K
and H shows how important is but one aspect of the subject.
K and H: the facts
The facts of the case are simply stated. Y, now aged 17, is
the older of M’s, a mother’s, older two daughters. She had a relationship with
F and two more children were born, K (a girl aged 5) and H (a boy, 4). Y
alleged sexual assault by F, which he denies. He seeks contact with his
children, and the truth of what she alleges – says Judge Bellamy – must be
tested by ‘oral evidence at a finding of fact hearing’ (para [10]).
On the assumption that a witness in Y’s position does not
wish to be cross-examined by the alleged perpetrator (and the question arises
in the case of other vulnerable witnesses: forced marriage cases; allegations
of rape; mental capacity issues etc), two different questions arise for the
court:
- is it appropriate, anyway, for an alleged abuser
to cross-examine his/her alleged victim; or
- if the alleged abuser does not wish to
cross-examine, should s/he have to (F was in this second category: he did not
want to have to cross-examine Y).
The first requires the judge to say: you may not cross-examine,
because I say so. The second requires the judge to decide, what next where an
unrepresented alleged perpetrator who is not eligible for legal aid (means or
merits or both) does not wish – entirely understandably – to cross-examine. The
second instance was the case here; though Judge Bellamy also holds he was
satisfied ‘that it is not appropriate for [F] to cross-examine Y’ (para [75]).
Funding for the
cross-examination of Y
F’s means made him ineligible for legal aid. He had dealt
with part of the case by funding it himself. It is submitted that this is not
the first question. If it is the fact – for whatever reason – that F is not
funded (eg from choice or limited means) and if Y’s evidence is required by the
court then the question is whether the court requires her to be cross-examined
by an advocate for the court; and if so who should pay for that.
With assistance from leading counsel instructed by the Lord
Chancellor the judge examined the provenance of the 1984 Act, s 31G(6),
since Magistrates’ Courts Act 1952, s 61. Section 31G(6)(b) provides
for parties who are not represented as follows:
'(6) Where in any proceedings in the family court it
appears to the court that any party to the proceedings who is not legally
represented is unable to examine or cross-examine a witness effectively, the
court is to –
(b) put, or cause to be put, to the witness such
questions in the interests of that party as may appear to the court to be
proper.'
He held that the provision should be viewed in its modern Family
Court context (para [34]); and this raised directly the appropriateness of the
court cross-examining the child witness. The judge explained this as follows:
‘Y's
allegations against the father are pivotal to determining welfare issues in respect
of K and H and in particular the issue of the nature and extent of their future
contact (if any) with their father…. In such circumstances, can it seriously be
contended that it would be 'appropriate' for the judge, who must determine the facts, to cross-examine the
key witness upon the reliability of whose evidence the fact-finding exercise so
heavily depends? In answering that question I bear in mind that that question
engages not only the father's Art 6 and Art 8 rights but also those of K and H
and arguably those of Y, too.’ (para [42])
And he concluded that there are cases – of which
K and H was one (para [43]) – where ‘cross-examination by the judge is
incompatible with the Art 6 and Art 8 rights of the respective
participants and is not, therefore, appropriate’. And this lead to what was
meant by ‘cause to be put to’ (in s 31G(6)). Could a non-party be required
to fund this where a party – F in this case – was not represented? The
conclusion was that on analogy with other HMCTS funding (paras [48]–[55])
and despite F being outside scope on means, then the expense of an advocate to
cross-examine Y should be paid for by HMCTS.
It is
submitted that the answer was much simpler than this. The Y question can be
approached solely from the point of view of the ‘vulnerable witness’, and what
a fair trial – ie the common law – demands for her evidence. If a family court
must help her, Human Rights Act 1998 requires HMCTS not to let her not
have a fair trial (s 6(1), as Sir James mentioned in
Q v Q). If F acts in person – it might
be his choice – and the court holds Y cannot be examined by him, then the cost
of an advocate (as in
H and L) is not
beyond the Lord Chancellor’s purse; and that has nothing to the legal aid
budget? My only
caveat is to wonder
whether the approach to the cash is not through the Attorney-General rather
than HMCTS.
A
common law/human rights blog take on this, from David Hart
QC suggests:
‘…the judge’s conclusion is driven inexorably by his
view that the father should not cross-examine his step-child, and that the
father could not afford his own lawyer. This is because we have a tradition of
our courts affording people fair trials within those courts. And you do not
even need to mention human rights to come to that conclusion, because [fair
trials] are afforded by our common law… And if our system of courts is to
operate as a system, rather than disjointed bits with different annual
budgets driven by Treasury targets without regard to what the system is really
all about, then courts will have to do what both common law and the HRA
requires them to do – make it fair.’
The funding
application: case management
The practical aspects of the funding issues are not given
immediate attention by
Re K and H;
but then nor, it seems, was the judge’s attention drawn to
Attorney General’s Memorandum of 19 December 2001. The decision
must be addressed by the court with the party in F’s position at an early case
management appointment; a decision by the ultimate fact-hearing tribunal must
be made as to whether an unrepresented alleged perpetrator (see Judge Bellamy’s
check-list at para [74]) should be required not to cross-examine (para [43]).
The funding application must be made,
by
the court – and it is submitted here, that application should be (as in
H and L) to Attorney-General under the
19 December 2001
Memorandum.
And then if I was running the family courts I
would politely: (1) ask Ministry of Justice to sort out the
Re D lacuna in relation to Children
Act 1989, s 39; and (2) request of the Vulnerable Witnesses Group when
they will be reporting back. I would suggest to them that they include the
Attorney-General and HMCTS in their discussions as to how information from
vulnerable witnesses in this
K and H
type of case should fairly – ie per the common law and from the point of each
witness – be put before the family courts.
The views expressed by contributing authors are not necessarily those of Family Law or Jordan Publishing and should not be considered as legal advice.
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