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England and Wales High Court (Administrative Court) Decisions |
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You are here: BAILII >> Databases >> England and Wales High Court (Administrative Court) Decisions >> Gulliver, R (on the application of) v Parole Board [2006] EWHC 2976 (Admin) (06 November 2006) URL: http://www.bailii.org/ew/cases/EWHC/Admin/2006/2976.html Cite as: [2006] EWHC 2976 (Admin) |
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QUEEN'S BENCH DIVISION
THE ADMINISTRATIVE COURT
Strand London WC2 |
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B e f o r e :
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THE QUEEN ON THE APPLICATION OF MARK GULLIVER | (CLAIMANT) | |
-v- | ||
THE PAROLE BOARD | (DEFENDANT) |
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(Official Shorthand Writers to the Court)
MR D PREVSKY (instructed by the Treasury Solicitor) appeared on behalf of the DEFENDANT
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Crown Copyright ©
"(1) The Secretary of State may, in the case of any prisoner who has been released on licence under this Chapter, revoke his licence and recall him to prison.
(2) A person recalled to prison under subsection (1)-
(a) may make representations in writing with respect to his recall, and
(b) on his return to prison, must be informed of the reasons for his recall and of his right to make representations.
(3) The Secretary of State must refer to the Board [the Parole Board] the case of a person recalled under subsection (1)."
and subsection (4) requires the Secretary of State to comply with a direction of the Board for immediate release.
"You have been recalled to prison because you have breached condition 5(vii) of your licence in the following way:
It has been reported that you have failed to comply with such arrangements as may be reasonably put in place and notified to you by your supervising officer so as to allow for your whereabouts to be monitored by global positioning satellite (whether by electronic means or otherwise) in that on 23rd March 2006 you failed to re-charge your satellite tracking unit when prompted to do so by Securicor. You acknowledged the message which informed you that your battery was running low but did not put the unit to charge for a further 4 hours and 18 minutes, during which time your whereabouts could not be monitored via satellite tracking. It is your responsibility to ensure that the tracking unit is fully charged and operational.
In view of the offences for which you were originally sentenced, the risk suggested by your offending history and your behaviour as described above, the Home Secretary is no longer satisfied that it is right for you to remain on licence."
"The Board accepted that there may have been problems in getting the satellite tracking system equipment to work properly and that there was no evidence to prove conclusively that Mr Gulliver had failed to recharge the equipment during a crucial period of some four hours overnight. Mr Gulliver deserved credit for alerting the police and probation service to the fact that the security firm had inadvertently disclosed his partner's new address to him. However given his history of violence towards this and previous partners, the Board is satisfied that in the circumstances known at the time the decision to recall was justified. In reaching this decision the Board has taken account of an email from the security firm stating that the tracking equipment was working properly when it was checked after the alleged breach.
Mr John Grimes, the home probation officer, and his line manager ... both gave evidence. During the hearing they changed their view that the risk was manageable. Crucial to the release plan proposed in consultation with the MAPP team was a condition of residence at a hostel in Fareham, on the mainland. It was considered essential that Mr Gulliver remained under close supervision and not on the Isle of Wight now that the pilot satellite tracking option had ended. Mr Gulliver was still considered to present a high risk of causing harm to his ex-partner as well as any future partner.
Although Mr Gulliver had previously signed up to residing at the hostel, his reservation about the move away from the Isle of Wight became clear. Not only would he lose the support of his family and an offer of work, but he feared the isolation and exposure to drugs. At one stage during the hearing Mr Gulliver said he doubted he would be able to cope with this. Also, having finally prepared himself to tackle difficult issues from this childhood through counselling he was very troubled at the prospect of transferring from one counselor to another at a stage when he returned to the island."
"While, fourthly, it is true that early release provisions have the practical effect of relieving overcrowding in the prisons, that is not their penal justification. But such justification exists. All, or almost all, determinate sentence prisoners are expected to return to the community on release from prison after serving their sentences. It is in the interests of society that they should, after release, live law-abiding, orderly and useful lives. For a host of practical, psychological and social reasons, the process of transition from custody to freedom is often very difficult for the prisoner. It is accordingly very desirable that the process of transition should be professionally supervised, to maximise the chances of the ex-prisoner's successful reintegration into the community and minimise the chances of his relapse into criminal activity. But of course there will be cases in which such professional supervision may not be, or appear to be, effective. If a prisoner is released, subject to conditions, before the expiry date of the sentence imposed by the court, and he does not comply, or appears not to comply, with the conditions to which his release was subject, a question will arise whether, in the interests of society as a whole, he should continue to enjoy the advantages of release.
26. lastly, it is plain from the statutory provisions already quoted that the resolution of questions of the type indicated is entrusted, and entrusted solely, to the Parole Board. In exercising this very important function, it is recognised to be an independent and impartial tribunal for purposes of article 6(1) of the European Convention. It is the primary decision-maker, not entitled to defer to the opinion of the Secretary of State or a probation officer: R v Parole Board, Ex p Watson [1996] 1 WLR 906, 916. As the materials already cited make clear, the Parole Board is concerned, and concerned only, with the assessment of risk to the public: it must 'balance the hardship and injustice of continuing to imprison a man who is unlikely to cause serious injury to the public against the need to protect the public against a man who is not unlikely to cause such injury'..."
As Lord Slynn pointed out in the same case, the recall of the prisoner on licence is not a punishment:
"It is primarily to protect the public against further offences, though it may also in some cases lead to further training which would enable the prisoner on a subsequent release to integrate more readily into the community."
In the same case, at page 363, Lord Bingham considered article 5(4) of the European Convention, which requires that everyone deprived of his liberty should be entitled to take proceedings by which the lawfulness of his detention should be speedily decided by the court and his release ordered if the detention was not lawful. It was accepted in that case that the Parole Board had the essential features of a court within the meaning of article 5(4) and Lord Bingham continued at letter F on page 363:
"Convention jurisprudence establishes that the judicial review of the lawfulness of detention must be wide enough to bear on those conditions which, under the Convention, are essential for the lawful detention of a person in the situation of the particular detainee..."
He then cites a number of cases:
"That means, for present purposes, that the Parole Board should be empowered (a) to examine whether circumstances have arisen sufficient in law to justify further detention of a determinate sentence prisoner released on licence and, if so, (b) to decide whether the protection of the public calls for the further detention of the individual detainee. The Parole Board is empowered to discharge those functions. Its review will in my opinion satisfy the requirements of article 5(4) provided it is conducted in a manner that meets the requirement of procedural fairness already discussed."
"The Secretary of State may also give to the Board directions as to the matters to be taken into account by it in discharging any functions under this Chapter or under Chapter 2 of Part 2 of the 1997 Act; and in giving any such directions the Secretary of State must have regard to-
(a) the need to protect the public from serious harm from offenders, and
(b) the desirability of preventing the commission by them of further offences and of securing their rehabilitation."
"Section 254 of the Criminal Justice Act 2003 requires the Parole Board to review any decision taken by the Secretary of State to recall an offender to prison. The review will take place once the offender has been returned to custody. In determining whether the recall was appropriate, the Parole Board is entitled to take into account the information available at the time the recall decision was taken, together with any subsequent information, including representations made by or on behalf of the offender. The Parole Board should consider whether:
(a) The prisoner's continued liberty presents an unacceptable risk of a further offence being committed; or
(b) The prisoner has failed to comply with one or more of his or her licence conditions; and that failure suggests that the objectives of probation supervision have been undermined."
"In cases where the Parole Board believes that the initial decision to recall was inappropriate, the prisoner should be re-released as soon as it is practicable to do so. In determining when to re-release the prisoner, the Parole Board should satisfy itself that the prisoner presents an acceptable risk to public safety and that adequate risk management arrangements are in place."
"The claimant was a serving prisoner who was released on licence. Soon after his release he was recalled by the Secretary of State. His recall was subsequently confirmed by the Parole Board. He contends that the recall and/or its confirmation by the Parole Board were unlawful, that his subsequent imprisonment was therefore unlawful and that he is entitled to damages for such unlawful imprisonment. The arguments before me have concentrated on the lawfulness of the recall and its confirmation. It is common ground that if either decision was unlawful, then the claimant's imprisonment was unlawful from the date of the unlawful decision: see R v. Governor of Brockhill Prison, ex parte Evans (No.2) [2001] 2 AC 19."