Independent Adjudications – independent, just and fair? Part one
by Faye Dyke - solicitor at RTW
A prisoner will be adjudicated when alleged to have broken a prison rule. The charge is first heard by the Governor, who, depending on the seriousness, will either:
1. Deal with the matter themselves;
2. refer the charge to the Independent Adjudicator (“IA”); or
3. refer the matter to the police.
The IA is a District Judge who comes into the prison to deal with the case. If the matter is referred to the IA, the prisoner is at risk of additional days being added to their sentence; this is not a power that the Governor has.
In 2011, the Ministry of Justice issued internal guidance to cover Governor adjudications (PSI 47/2011). This guidance does not bind an IA, but some will accept that the guidance should be followed. In my experience, there are inconsistencies in approach between different IAs. This often results in unfair and unjust decisions. It also makes the outcome of the hearing difficult to predict and difficult to reassure clients of a positive result when their case is evidentially flawed from the outset.
The IA is unique in not being governed by statutory rules, or binding guidance. Such rules govern the conduct of the Parole Board – the Parole Board Rules, Criminal Courts – statute, common law and the Criminal Procedure Rules. The IA supposedly applies “natural justice” (common law fairness) having regard to the offences set out in the Prison Rules. Prison Rule 54 provides no more than that a person shall be given “a full opportunity to presenting what is alleged against him and of presenting his own case.”
The judgment of the Strasbourg Court in Ezeh v United Kingdom [2003] 39 EHRR 1, held that where additional days may be imposed, a prison disciplinary hearing (Independent Adjudication) will be “criminal” proceedings for the purposes of Article 6 ECHR (that being the right to a fair trial).
Notably, the standard of proof for the IA to establish guilt is the same– satisfied beyond reasonable doubt. The punishment is similar to that of criminal charges – imprisonment.
However, unlike criminal proceedings, the rules of evidence do not apply, and the Prison Rules are silent on such important matters as:
i. The admissibility of evidence, including hearsay evidence;
ii. The exclusion of evidence that might render the proceedings unfair;
iii. Any entitlement to an interpreter;
iv. The principles governing the granting of adjournments; and
v. The principles governing a decision to proceed in the prisoner’s absence.
These matters are fundamental to Article 6, and their absence curtails Article 6, which is said to apply.
I have represented clients where an application for dismissal has been made on the basis of duplicity, as per paragraph 1.14 of PSI 47/2011. Sometimes this is accepted, on other occasions it is not.
Different Judges take different approaches to the testing of seized items, the production of evidence and the request for the reporting officer’s attendance to test their evidence.
Judges are often content with the sentence, or two, of the ‘facts’ of the case detailed on the charge sheet. How does this go to an independent and impartial review when an officer’s evidence is not put to proof? Quite simply, it doesn’t.
Similar issues have been encountered when items alleging to be drugs have been discovered. In cases where the item has not been tested, an application for confirmation testing will be made to ascertain what the substance is as this is relevant to the amount of days the IA may impose. The applications are sometimes refused. In one particular case at HMP Pentonville the application was refused on the basis that it was a green substance and so would be treated as cannabis.
This would never stand in a court of law. The rules of evidence would permit the substance to be produced and tested. If it was not, the case would be thrown out. So why is this not the case in Independent Adjudications where a Strasbourg case has held that they are “criminal” proceedings?
Faye Dyke challenged this case via Judicial Review and had success. Read more in Part Two of this Blog