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CRIMINAL JUSTICE (SCOTLAND) BILL - PDF
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1 CRIMINAL JUSTICE (SCOTLAND) BILL EXPLANATORY NOTES (AND OTHER ACCOMPANYING DOCUMENTS) CONTENTS As required under Rule 9.3 of the Parliament s Standing Orders, the following documents are published to accompany the Criminal Justice (Scotland) Bill introduced in the Scottish Parliament on 20 June 2013: Explanatory Notes; a Financial Memorandum; a Scottish Government Statement on legislative competence; and the Presiding Officer s Statement on legislative competence. A Policy Memorandum is printed separately as SP Bill 35 PM. SP Bill 35 EN 1 Session 4 (2013)
2 EXPLANATORY NOTES INTRODUCTION 1. These Explanatory Notes have been prepared by the Scottish Government in order to assist the reader of the Bill and to help inform debate on it. They do not form part of the Bill and have not been endorsed by the Parliament. Any examples provided are purely illustrative and do not imply that provisions do not apply in other circumstances. 2. The Notes should be read in conjunction with the Bill. They are not, and are not meant to be, a comprehensive description of the Bill. So where a section or schedule, or a part of a section or schedule, does not seem to require any explanation or comment, none is given. OVERVIEW OF THE BILL 3. The Bill seeks to support the aims set out in the Policy Memorandum by introducing reforms to modernise and enhance the efficiency of the Scottish criminal justice system. The provisions in the Bill take forward a range of the Scottish Government s key justice priorities. Some of these provisions have been developed from the recommendations of two independent reviews: Lord Carloway s review of criminal law and practice 1 and Sheriff Principal Bowen s review of sheriff and jury procedure 2. The Scottish Government sought views on Lord Carloway s 3 and Sheriff Principal Bowen s 4 recommendations in two separate consultations. A further consultation was also carried out on whether additional safeguards 5 may be required if the requirement for corroboration is removed. Further information on these consultations can be found in the Policy Memorandum. 4. The Bill is in seven Parts. 5. Part 1 (Arrest and custody) includes provisions on the powers of the police to arrest, hold in custody and question a person who is suspected of committing an offence. This part also provides for the rights of such persons in custody and makes specific provision for vulnerable adults and children. 6. Part 2 (Corroboration and statements) provides for the abolition of the corroboration rule in criminal proceedings as well as the admissibility of mixed and exculpatory statements. 7. Part 3 (Solemn procedure) makes a number of amendments to the solemn procedure set out in the Criminal Procedure (Scotland) Act 1995 ( the 1995 Act ). These include imposing a duty on parties in criminal proceedings to communicate, increasing the length of time for which an accused person can be remanded before having to be brought to trial from 110 to 140 days, and increasing the jury majority required for a guilty verdict
3 8. Part 4 (Sentencing) increases the maximum sentence for handling offensive weapons offences, places a specific duty on the court to consider whether it is appropriate to punish an offender for committing an offence while on early release, and increases the flexibility for different levels of court to consider imposing a punishment on such offenders. 9. Part 5 (Appeals and SCCRC) amends the 1995 Act to make changes to appeal procedures in the High Court and adjusts how the Appeal Court will consider Scottish Criminal Case Review Commission referrals. 10. Part 6 (Miscellaneous) creates a statutory aggravation of people trafficking which will apply in cases where an accused commits an offence connected with people trafficking. This Part also makes provision to enable the use of TV links by courts and establishes and sets out the functions for a Police Negotiating Board for Scotland. 11. Part 7 contains general and ancillary provisions. COMMENTARY ON SECTIONS Part 1 Arrest and custody Chapter 1 Arrest by police Arrest without warrant Section 1 Power of a constable 12. Section 1 sets out new powers of a police constable to arrest, without a warrant, a person suspected of having committed or to be committing an offence in Scotland. (Note, however, that the arrest regime under the Terrorism Act 2000 is unaffected by the Bill (see sections 50(b) and 53)). 13. Section 1(1) provides that a constable (defined in section 54) who has reasonable grounds to suspect that a person has committed or is committing an offence may arrest that person without a warrant. 14. Section 1(2) qualifies the power of a constable to arrest a person without warrant for having committed an offence which is not punishable by imprisonment. Not only must a constable have reasonable grounds for suspecting the person, the constable must also be satisfied that the interests of justice would not be met if the person was not immediately arrested for the offence. Section 1(3) sets out factors that may be relevant in applying the interests of justice test referred to in section 1(2). Section 2 Exercise of the power 15. Section 2 sets out how the power of arrest set out in section 1 can be exercised. 3
4 16. Section 2(1) provides that a person may be arrested under section 1 multiple times for the same offence (e.g. a person may be arrested, questioned and released and subsequently arrested again if, for example, further evidence comes to light). 17. Section 2(2) clarifies that the power to arrest again does not apply to persons who have been officially accused (defined in section 55) of having committed the offence or an offence arising from the same circumstances. For example, the police cannot use the power of arrest to arrest a person without a warrant if they have a warrant to arrest the person. Procedure following arrest Section 3 Information to be given on arrest 18. Section 3 specifies the information which must be provided by a constable, as soon as is reasonably practicable, to an arrested person. The information will normally be provided immediately upon arrest. Section 4 Arrested person to be taken to police station 19. Section 4 sets out the requirement on a constable to take an arrested person to a police station as soon as is reasonably practicable after arrest (if not arrested there). By virtue of section 37 a constable may use reasonable force when doing so. Section 5 Information to be given at police station 20. Section 5 sets out the information that must be provided to a person taken to a police station under arrest and to those arrested whilst at a police station. 21. In particular, section 5(2) and (3) set out various matters that the arrested person must be informed of, as soon as reasonably practicable, e.g. their right not to say anything other than to provide information relating to their name, address etc.; their rights to have intimation sent, and to have access, to solicitors and, where appropriate, persons such as parents or other persons capable of giving support; and their rights under Articles 3 and 4 of Directive 2012/13/EU of the European Parliament and of the Council, including, for example, a letter of rights which contains basic information to assist persons in understanding their rights Section 6 Information to be recorded by police 22. Section 6 details the information which must be recorded by the police when a person is arrested under section Section 6(1) provides a list of the information to be recorded in respect of all arrests. 24. Section 6(2) to (5) specifies the information that must be recorded in relation to a person arrested and held in police custody (defined in section 56) but not officially charged with an offence e.g. the timing and outcome of a police decision on whether to authorise their continued custody; the time and outcome of any review of continued custody; the time a person is released from custody on conditions or charged. 4
5 Chapter 2 Custody: person not officially accused Keeping person in custody Section 7 Authorisation for keeping in custody 25. Section 7(1) sets out the procedure for keeping a person in custody where the person has been not been arrested under a warrant or charged with an offence by a constable. 26. Section 7(2) provides that authorisation to keep the person in custody must be sought as soon as reasonably practicable after the person is arrested at a police station or arrives at a police station following arrest. 27. Section 7(3) and (4) provide that authorisation to keep a person in custody may only be given by a constable who has not been involved in the investigation in connection with which the person is in custody and if the test set out in section 10 is met. Section 7(5) provides that if authorisation is refused then the person can continue to be held in custody only if charged with an offence. Section 8 Information to be given on authorisation 28. Section 8 provides that at the time when authorisation is given to keep a person in custody under section 7, the person must be informed of the reason they are being kept in custody and that they may only be kept in custody without charge for a maximum of 12 hours. Section 9 Review after 6 hours 29. Section 9(1) and (2) provide that where a person has been held in police custody for a continuous period of six hours and has not been charged with an offence, a decision must be made on whether to continue to keep that person in custody. That decision must be made as soon as reasonably practicable after the expiry of the period of six hours which started when the authorisation under section 7 was given. In making that decision, the test set out in section 10 is applied (referred to below). Under section 9(3) the decision must be made by a constable of the rank of inspector or above, who has not been involved in the investigation in connection with which the person is in custody. If the test set out in section 10 is not met, the person may continue to be held in custody only if they are charged with an offence. Section 10 Test for sections 7 and Section 10 sets out the test for keeping a person in custody under section 7(4) and reviewing continuation of that period of custody after six hours under section 9(2). 31. Section 10(1) provides that the test is that there are reasonable grounds for suspecting that the person has committed an offence and keeping the person in custody is necessary and proportionate for the purposes of bringing the person before a court or otherwise dealing with the person under the law. In considering what is necessary and proportionate regard may be had to (among others) the factors detailed in section 10(2). 5
6 Section hour limit: general rule 32. Section 11 provides that a person may not continue to be held in custody after a continuous period of 12 hours unless that person is then charged with an offence by a constable. The period of 12 hours begins at the point when authorisation to keep a person in custody is given by a constable in accordance with section 7. After the expiry of 12 hours if the person is not charged, they must be released, perhaps conditionally, if appropriate (see section 14). Section hour limit: previous period 33. Where a person is held in custody on more than one occasion for the same or a related offence, section 12 provides that the 12 hour maximum period of custody (set out in section 11) is reduced by any earlier period during which the person was held in custody for that offence. Section 13 Medical treatment 34. Section 13(1) and (2) apply to a person who is taken into police custody having been arrested without a warrant, has not been charged with an offence and is at a hospital for the purpose of receiving medical treatment. They provide that authority to keep a person in custody may be given as though section 7 applies in the hospital as it does in a police station. For the purpose of calculating the 12 hour maximum period of custody set out in section 11, account will be taken of any time during which a person is at a hospital or travelling to one and is being questioned by a constable (section 13(4) to (6)). The same rules apply in calculating any previous period of custody (section 12(3)). Investigative liberation Section 14 Release on conditions 35. Section 14 applies where a person is in police custody by virtue of the authorisation under section 7 (that is, where a person has been arrested without warrant and not charged, including a case where authorisation has been reviewed and continued under section 9) where a constable has reasonable grounds to suspect that the person has committed a relevant offence and the period of 28 days calculated in accordance with subsection (4) has not expired. As explained further below, the effect of section 14 is to enable the police to release such persons from police custody on conditions which may be applied for a maximum period of 28 days. It follows, that a person could not be released again on investigative liberation if arrested again after those 28 days have expired. The meaning of relevant offence is given in subsection (6). 36. Subsection (2) provides that a constable of the rank of inspector or above (subsection (5)) may authorise the release of a person from custody on any condition which is necessary and proportionate for the purpose of ensuring the proper conduct of the investigation into a relevant offence. The meaning of relevant offence is given in subsection (6). 37. Section 14(3) ensures that any condition imposed is treated as a liberation condition for the purposes of Chapter 7. This means that a breach of any condition may be penalised by a fine or a prison sentence as outlined in Chapter 7 and, a breach which would be an offence were the person not subject to liberation conditions may be taken into account in sentencing for that offence. 6
7 Section 15 Conditions ceasing to apply 38. Section 15 provides when conditions imposed on a person under section 14(2) cease to apply: namely, (under section 16) if the condition is removed by the police by notice, if the person is arrested in connection with a relevant offence ( relevant offence as defined by section 15(2)), if the person is officially accused of committing a relevant offence, at the end of the 28 day period (described in section 14(4)) or (under section 17) if the condition is removed as a result of an application for review made to a sheriff against the conditions. Section 16 Modification or removal of conditions 39. Section 16 enables a constable, by notice, to modify or remove any condition imposed by the police under section 14(2). A modified condition may be more or less onerous than the condition originally set. Under section 16(2) a notice about the modification or removal of a condition must be given in writing to the person who is subject to it and must specify the time from which the condition is modified or removed. Any modification or removal of a condition requires to be approved by a constable of the rank of an inspector or above. This power gives the police the flexibility to adjust conditions in lighted of changed circumstances. 40. Section 16(3) provides that a constable of the rank of inspector or above must keep under review whether or not there are reasonable grounds for suspecting that a person who is subject to a condition imposed under section 14(2) has committed a relevant offence (as defined in section 16(8)), and whether the condition imposed remains necessary and proportionate for the purpose of ensuring the proper conduct of the investigation into a relevant offence. If the inspector is no longer satisfied that there are reasonable grounds for suspecting that a person who is subject to a condition has committed a relevant offence, the person must be given notice of the removal of the condition. If no longer satisfied that a condition is necessary and proportionate, again the person must be given notice that the condition is being modified or removed. 41. Section 16(6) provides that any such notice must be given in writing to the person as soon as practicable and it must specify as the time from which the condition is modified or removed, the time at which the duty to give the notice arose i.e. the time at which the decision is made by an appropriate constable, to remove or modify the condition. Section 17 Review of conditions 42. Section 17(1) provides that a person who is subject to a condition imposed under section 14(2) may make an application for review to a sheriff. 43. Section 17(2) requires the sheriff to give the procurator fiscal an opportunity to make representations before the review is determined. 44. Section 17(3) provides that where the sheriff is not satisfied that the condition imposed is necessary and proportionate, the sheriff may remove it or impose an alternative condition which the sheriff considers to be necessary and proportionate for that purpose. 45. Section 17(4) provides that a condition imposed on review by the sheriff under section 17(3) is to be regarded as having been imposed by a constable under section 14(2). This 7
8 provides that in effect, the conditions set by the sheriff have the same effect and are to be taken as having taken effect when set by the police, i.e. the 28 day period is calculated from the date on which the police conditions were set. Conditions imposed by the sheriff can be modified or removed under section 16(1) in the same manner as police conditions. Chapter 3 Custody: person officially accused Person to be brought before court Section 18 Person to be brought before court 46. Section 18(1) and (2) provide that, wherever practicable, persons kept in custody after being arrested under a warrant or arrested without a warrant and subsequently charged with an offence by a constable, must be brought before a court by the end of the next court day. For example, a person arrested at 11pm on a Tuesday and charged with an offence at 2am on the Wednesday would be due in court not later than the end of the court s sitting on the Thursday. 47. Section 18(3) provides for persons to be considered to be brought before a court if appearing by television link. Police liberation Section 19 Liberation by police 48. Section 19(1) and (2) provide that where a person is in custody having been charged with an offence, the police may: release that person on an undertaking under section 20, release the person without an undertaking or refuse to release. (Note the provisions do not apply where a person is in custody by virtue of a warrant granted under section 29(1)). It is also relevant to note that under section 41 a constable must take every precaution to ensure that a person is not unreasonably or unnecessarily held in police custody. 49. Section 19(3) provides that a constable will not be liable to any claim because of a refusal to release a person from custody. Section 20 Release on undertaking 50. Again, in considering whether to release a person on an undertaking the police will be mindful of their obligations under section 41 of the Bill (duty not to detain unnecessarily). Section 20(1) provides for a person to be released from police custody on an undertaking given under section 19(2)(a) only if they sign that undertaking. 51. Section 20(2) specifies the terms of an undertaking and section 20(3) and (4) set out the conditions that an appropriate constable (defined in section 20(5) as a constable of the rank of inspector or above) may impose. 8
9 52. Section 20(6) provides that the requirement imposed by an undertaking to attend at court and comply with conditions are to be taken to be liberation conditions for the purposes of Chapter 7 on breach of liberation conditions. This means that a breach of any condition may be penalised by a fine or a prison sentence as outlined in Chapter 7 and a breach which would be an offence were the person not subject to liberation conditions may be taken into account in sentencing for that offence. Section 21 Modification of undertaking 53. Section 21(1) enables the procurator fiscal by notice (effected as set out in section 21(5)) to modify an undertaking given under section 19(2)(a), either by changing the time or place of the court hearing or removing or altering a condition in the undertaking. The manner of citation may be effected, for example, by delivering the notice personally or leaving it at the person s home. 54. Section 21(2) provides that any alteration to a condition in an undertaking should not make a condition more onerous on the person. 55. Section 21(3) provides for the procurator fiscal to rescind an undertaking. This would be appropriate, for example, if a decision is made not to prosecute. Section 21(4) provides for the circumstances in which an undertaking will expire. Section 22 Review of undertaking 56. Section 22(1) enables a person subject to an undertaking to apply to the sheriff for review. 57. Section 22(2) provides that the sheriff must provide the procurator fiscal with an opportunity to make representations with regard to the review. Section 22(3) provides that the sheriff may either remove a condition or impose any alternative condition that the sheriff considers to be necessary and proportionate. Chapter 4 Police interview Rights of suspects Section 23 Information to be given before interview 58. Section 23 applies to a person who is either in police custody (defined in section 56) or has voluntarily attended a police station, or other place, for the purpose of being interviewed by the police. 59. It requires a constable to inform a person suspected of committing an offence of their rights at the most one hour before any interview commences. These rights are: the right not to say anything other than to provide the person s name, address, date of birth, place of birth and nationality; the right to have a solicitor present during any interview; and 9
10 if the person is being held in police custody, the rights detailed in Chapter 5, namely: the right to have another person informed that the person is in custody, the right to have a solicitor informed that the person is in custody and the person s right of access to a solicitor whilst in custody. 60. Subsection (3) provides that if a person has already exercised their right to have another person or solicitor informed of their custody, then the police are not required to inform the person of these rights a second time. 61. For the purpose of this section, a constable is not to be regarded as interviewing a person about an offence merely by asking for the person s name, address, date of birth, place of birth and nationality. As such, a constable does not have to inform the person of their rights, as detailed at subsection (2), before asking the person for these details. Section 24 Right to have solicitor present 62. This section provides for the right of a person reasonably suspected of committing an offence to have a solicitor present during police interview. It applies to a person who is either in police custody or has voluntarily attended a police station, or other place, for the purpose of being interviewed by a constable. 63. Section 24(3) provides that unless a person has consented to be interviewed without a solicitor present, a constable must not start to interview the person about the alleged offence until a solicitor is present and must not deny the solicitor access to the person at any time during interview. 64. Under subsection (4), a constable may start to interview the person without a solicitor present if satisfied it is necessary to interview the person without delay in the interests of the investigation or prevention of crime, or the apprehension of offenders. This is a high test. If a solicitor becomes available during such time as the police are interviewing a person, the solicitor must be allowed access to that person. 65. For the purpose of this section, a constable is not to be regarded as interviewing a person about an offence merely by asking for the person s name, address, date of birth, place of birth and nationality. As such, a constable does not have to wait for a solicitor to be present before asking a person for these details. 66. Subsection (6)(a) and (b) provides for a record to be made of the time at which a person consents to be interviewed without a solicitor present and any reason the person gives for waiving the right to have a solicitor present. A person may revoke their consent at any time and in such a case the police must record the time at which a person requests that intimation is sent to a solicitor and the time that intimation is sent (section 6(1)(f) and (g)). Section 25 Consent to interview without solicitor 67. Subsection (2)(a) provides that a person under 16 years of age may not consent to be interviewed without a solicitor present. 10
11 68. Subsection (2)(b) provides that a person aged 16 years and over and, owing to a mental disorder (as defined in subsection (6)(a)), is considered by a constable to be unable to understand sufficiently what is happening or to communicate effectively with the police, may not consent to be interviewed without a solicitor present. 69. Subsections (3), (4) and (5) provide that a person who is 16 or 17 years of age and not suffering from a mental disorder may consent to be interviewed without a solicitor present with the agreement of a relevant person. If the person aged 16 or 17 years is in police custody, a relevant person means any person who could by virtue of section 32(2) visit the person. If the person aged 16 or 17 is not in police custody, a relevant person means a person who is at least 18 years of age and is reasonably named by the 16 or 17 year old. Person not officially accused Section 26 Questioning following arrest 70. Section 26 enables a constable to question a person following arrest provided the person has not been officially accused of the offence (i.e. charged with the offence by the police or where a prosecutor has started proceedings in relation to the offence), or an offence arising from the same circumstances. The person has the right, however, not to answer any questions but must provide the police with their name, address, date of birth, place of birth and nationality. 71. Under subsection (3), the use, in evidence, of any answers given by a person during questioning is subject to the laws on admissibility. In general terms, this means that any questioning must be fair. Person officially accused Section 27 Authorisation for questioning 72. Section 27 introduces a regime to allow the court to authorise a constable to question an accused person after the person has been officially accused of an offence or offences. 73. Subsection (1) confirms that the court may authorise a constable to carry out questioning once this stage has been reached. There is no provision for any other person, such as a prosecutor, to be so authorised. 74. Subsections (2) and (3) set out the circumstances in which the court can allow this questioning to take place. These provisions are designed to ensure that this power is exercised proportionately, having regard both to the rights of the accused person and to the public interest in gathering evidence in respect of an alleged criminal offence. 75. Thus subsection (2) provides that the court needs to be satisfied that the proposed questioning is in the interests of justice. 76. Subsection (3) sets out further factors which the court must take into account when deciding whether or not to authorise an application for questioning. 11
12 77. Subsection (5) applies where a court has granted an application to authorise questioning after the case has called in court, either having been commenced by means of a warrant, or where the accused has appeared in court. In those circumstances, subsection (4) gives the accused person the right to be heard by the court before any decision on the application is made. The person can be represented by a solicitor for these purposes, if the person wishes. It follows that the person has no similar right to be heard in respect of an application about a case which has not yet called in court. 78. Subsection (6) applies where the court has decided to grant the application and authorise questioning. In that event, subsection (6)(a) provides that the court must specify the length of time during which a constable may question the accused person. Subsection (6)(b) allows, but does not require, a court to place other conditions on the questioning to ensure that it is not unfair to the accused person. This might, for example, mean a restriction on the subject matter about which the accused person can properly be questioned. 79. Subsection (7) provides that there is no right of appeal against the decision of a court either to grant or refuse authorisation, or against any conditions imposed by the court under subsection (6)(b). 80. Subsection (8) defines the word court for the purposes of this section. Section 28 Authorisation: further provision 81. Section 28 makes further provision in respect of questioning after a person has been officially accused of an offence. 82. Subsection (1) sets out who may make an application for authorisation. Where the case against the accused person has called in court in terms of section 27(5), subsection (1)(a) provides that the application must be made by a prosecutor; otherwise the application should be made by a constable (subsection (1)(b)). In the former case, though, even if the application is granted, the questioning will be carried out by a constable, in terms of section 27(1); the prosecutor s limited right to question an accused person at the inception of solemn proceedings only (generally known as judicial examination ) is abolished by section 63 of this Bill. 83. Subsection (2) defines prosecutor for the purposes of subsection (1). 84. Subsection (3)(a) gives the High Court of Justiciary the power to prescribe, in an Act of Adjournal, the form in which a written application seeking authorisation must be made; and a written application should closely follow that form. Subsection (3)(b), by requiring an applicant to include details of any previous applications for authorisation to question the accused person, either about the same offence, or about another offence arising out of the same circumstances, will ensure that the court has information about any such previous applications. 85. Subsection (4) sets out when authorisation to question the accused person comes to an end: either when the period stipulated by the court under section 27(6)(a) expires; or, when the trial of the accused person starts. Subsection (5) defines when a trial is deemed to have started for this section. 12
13 86. Subsection (6) defines authorisation and offence for the purposes of this section. Section 29 Arrest to facilitate questioning 87. Where the police wish to question someone who has been officially accused of an offence, but is at liberty, section 29 provides that it will be open to the court to grant a warrant for the arrest of the accused person so the person can be detained for the purposes of questioning. 88. Subsection (1) provides that, when granting authorisation for questioning, a court can grant a warrant for the accused person s arrest if it is expedient to do so. 89. Subsection (2) protects the accused person from indefinite detention, by requiring that if the court grants an application for a warrant it must put a time limit on the period for which the person can be detained to be questioned. Subsection (3) makes provision as to when the accused person s detention, under a warrant granted in terms of this section, must come to an end. 90. Subsection (4) clarifies when an accused person s detention under a warrant granted in terms of this section starts, making it possible to determine when the period specified in section 29(3)(a) has expired. 91. Subsections (5)(a) and (b) put it beyond doubt that a warrant under this section does not operate to recall or affect the operation of any bail order that the accused person might be on, whether in the same proceedings or not. While the accused person is in custody, having been detained and arrested on the warrant, subsection 24(5)(b) of the Criminal Procedure (Scotland) Act 1995, which makes it a condition of bail that the accused does not commit an offence while on bail, remains in force. This means that if the person commits an offence while detained in custody under a warrant granted in terms of this section, it would be a breach of that condition of bail. Once the accused person s detention ends, the bail order applies in full, including any conditions attached to that order. 92. Similarly, subsection (5)(c) makes it clear that, where an accused person has been liberated on an undertaking in terms of section 19 of this Bill, the terms and conditions of the undertaking remain in force where a warrant is granted for the accused person, and continue in force after arrest and detention on that warrant. Chapter 5 Rights of suspects in police custody Intimation and access to another person Section 30 Right to have intimation sent to other person 93. Section 30 affords a person in police custody the right to have someone else informed that the person is in police custody and where they are being held in custody. 94. This intimation must be sent as soon as reasonably practicable after the person arrives at a police station unless a delay is considered necessary in the interests of the investigation or prevention of crime, or the apprehension of offenders (subsection (5)). Where such a delay is required, it should be for no longer than necessary (subsection (4)(b)). 13
14 95. If a constable believes that the person in police custody is under 16 years of age, under subsections (2)(a) and (3)(a), a parent must be informed, regardless of whether the person requests that intimation be sent. The definition of a parent for this section and section 31 includes a guardian and any other person who has the care of the person (subsection (6)). Section 31 Right to have intimation sent: under 18s 96. Under this section, if a constable believes that a person in police custody is under 18 years of age, the person sent intimation under section 30 must be asked to attend at the police station or other place where the person is being held (subsection (2)). For those under 16 years this means a parent of the person and for those aged 16 and 17 years, an adult named by them (section 30(3)). 97. If a constable believes that a person in police custody is under 18 years of age and finds that the person to whom intimation is to be sent is not contactable within a reasonable time, or is unable or unwilling to attend in a reasonable time, then intimation must be sent to another appropriate person. An appropriate person for these purposes might be a parent or guardian or carer or as a final resort, a duty social worker from the local authority. 98. Where the person in police custody is believed to be under 16, attempts to send intimation must continue until an appropriate person is contacted and agrees to attend at the police station or other place the person is being held within a reasonable time. For these purposes, an appropriate person means a person the police consider appropriate having regard to the views of the person in police custody. 99. Where the person in police custody is believed to be 16 or 17 years of age, attempts to send intimation must continue until attempts to send intimation must continue until an appropriate person is contacted and agrees to attend at the police station or other place the person is being held within a reasonable time or the person in custody requests that, for the time being, no further attempts be made. For these purposes an appropriate person means an adult who is named by the person in custody and to whom a constable is willing to send intimation without delay Subsection (6) provides that, where the police delay sending intimation by virtue of section 30(4)(b) (which allows the police to delay sending intimation where the person to be contacted is someone the police fear will compromise the investigation or the apprehension of offenders), they must endeavour to contact another appropriate person in accordance with subsection (4)). Section 32 Right of under 18s to have access to other person 101. Section 32 provides for children under 18 years of age in police custody to have access to another person Under subsection (1) all children under 16 years of age in police custody must have access, in the first instance, to any parent (defined in subsection (4) to include guardians and carers) to provide support. Subsection (1)(b) ensures that where a parent is not available (that is, where they cannot be reached or are unable to attend within a reasonable time), the child has 14
15 access to another appropriate adult sent intimation under section 30, subject to the caveats in section 32(3) Subsection (2) provides similar rights of access for those aged 16 or 17 years. However, in this case the adult granted access to the 16 or 17 year old does not have to be their parent (in line with section 30, which allows this age group to request that intimation be sent under that section to an adult other than their parent). As explained in section 31, intimation may be sent to more than one person. Access must be provided to at least one person (or more, if it is considered appropriate and in the best interests of the child), subject to the caveats in section 32(3) In both subsection (1) and (2) the reference to reasonable time ensures that the police can provide access to another person where the parent (children aged under 16 years) or the initially and reasonably named person (children aged 16 or 17 years) cannot attend within a reasonable time. Vulnerable persons Section 33 Support for vulnerable persons 105. Section 33 makes provision to identify vulnerable adults in police custody and to provide them with support to assist communication between them and the police. In practice, this support is provided by an Appropriate Adult though this term is not used in the Bill To ensure support is provided as soon as is reasonably practicable, subsections (1), (2) and (4) provide that, where a police constable (who may have been advised that a person is vulnerable following an initial assessment by the police custody and security officer, who is a uniformed non-warranted officer, whose duties include attending to the wellbeing of a person in their custody) considers that a person in police custody is age 18 or over and is unable, because of a mental disorder, to understand what is happening or to communicate effectively, they must make sure that an Appropriate Adult is told where the person is being held (this is not always at the police station and could be, for example, at a hospital) and that they require the support of an Appropriate Adult Subsection (3) provides that the role of the Appropriate Adult is to assist a vulnerable person to understand what is happening and to facilitate effective communication between the vulnerable person and the police Subsection (5) explains that mental disorder is as defined in section 328(1) of the Mental Health (Care and Treatment) (Scotland) Act 2003 (i.e. any mental illness, personality disorder, learning disability however caused or manifested ). It also explains that references to the police are to constables or members of police staff as provided for in section 99 of the Police and Fire Reform (Scotland) Act This ensures that a constable can delegate certain tasks, such as intimation to an Appropriate Adult, to a civilian member of police staff. 15
16 Section 34 Power to make further provision 109. Section 34 gives the Scottish Ministers regulation making powers to amend the category of person entitled to support from an Appropriate Adult, and what that support should consist of. It also allows the Scottish Ministers to specify who may be considered a suitable person to provide support to a vulnerable person and what training, qualifications or experience are necessary to undertake this role. Intimation and access to a solicitor Section 35 Right to have intimation sent to solicitor 110. Section 35 affords a person in police custody the right to have a solicitor informed, as soon as reasonably practicable after a request is made by the person in police custody, that the person is being held in police custody, where they are being held and that the professional assistance of a solicitor is required. If the person has been officially accused of an offence (i.e. charged with the offence by the police or where a prosecutor has started proceedings in relation to the offence), the person has the right to have a solicitor informed whether they are to be released from custody or, if not, of the court before which the person is to be brought and the day on which the person will be brought before court. Section 36 Right to consultation with solicitor 111. Section 36 provides for the right of a person in police custody to have a private consultation with a solicitor at any time. For the purposes of this section, a consultation is defined by subsection (3) as a consultation by such means as considered appropriate, for example, by telephone Under subsection (2) the police can delay the exercise of this right only so far as necessary in the interest of the investigation or prevention of crime, or the apprehension of offenders. Chapter 6 Police powers and duties Powers of police Section 37 Use of reasonable force 113. Section 37 enables a constable to use reasonable force to effect an arrest and when taking a person in custody to any place. Section 38 Common law power of entry 114. Section 38 makes clear that any existing powers of a constable to enter any premises for any purposes are not affected by this Bill. Those powers remain. Section 39 Common law power of search etc Section 39(1) similarly preserves any existing powers of a constable in relation to a person arrested and charged, for example, to search them, seize items in their possession and place them in an identification parade (this list is not exhaustive). 16
17 Section 40 Power of search etc. on arrest 116. Section 40 makes clear that the powers described in section 39(2) which can be exercised by a constable in relation to a person after arrest and charge can also be exercised between a person s arrest and the person being charged. Duties of police Section 41 Duty not to detain unnecessarily 117. Section 41 provides that a constable must ensure that a person is not unreasonably or unnecessarily held in police custody. Section 42 Duty to consider child s best interests 118. Section 42 states that in making decisions to arrest a child (defined for this section in subsection (3) as a person under 18 years of age), hold a child in police custody, interview a child about an offence which the child is suspected of committing, or charge a child with an offence, a constable must treat the need to safeguard and promote the well-being of the child as a primary consideration. This does not mean that the interests of the child are the only consideration or that they are, in all cases, the most important consideration. For example, the need to protect others may prevail. Chapter 7 Breach of liberation condition Section 43 Offence where condition breached 119. Section 43(1) sets out the circumstances in which a person breaches a liberation condition and thereby commits an offence. A liberation condition includes investigative liberation conditions imposed before charge under section 14(2) or requirements imposed by an undertaking given after charge under section 19(2). Section 43(2) provides that section 43(1) does not apply when a person breaches a liberation condition by reason of committing an offence. Such breaches are dealt with in accordance with section 45. An example of a breach of condition which may, of itself, not constitute a separate offence is a condition not to enter a particular street. If the person subject to the condition is subsequently found in that street, then a breach of liberation has occurred, but not a separate offence. If the condition was that the person was not to approach a particular witness in the case and the person does contact the witness then not only has a breach of condition occurred, but a more serious offence (attempting to defeat the ends of justice) may have taken place Section 43(3) provides that a complaint may be amended to add an additional charge of an offence of breaching a liberation condition at any time before the trial of an accused for either the original offence (see section 43(4)) or an offence arising from the same circumstances as that offence. Section 44 Sentencing for section 43 offence 121. Section 44(1) sets out the penalties applicable to a person convicted of an offence of breaching a liberation condition under section 43. Sections 44(2) to (3) provide that such a penalty may be imposed in addition to any other penalty that may be imposed, even if the total 17
18 exceeds the maximum penalty for the original offence. The penalties should run consecutively, subject to section 204A of the Criminal Procedure (Scotland) Act 1995 Act which concerns restriction on consecutive sentences for released prisoners. The provisions put beyond doubt that the penalty imposed for breach of the condition can be imposed on top of the penalty for original offence, even where the penalty imposed for the original offence represents the maximum penalty applicable in the circumstances Subsections (5) and (6) provide that where a court finds a person guilty of breaching a liberation condition, or the person pleads guilty to that offence, the person may be sent for sentence at any court which is considering the original offence (as defined in subsection (7). Section 45 Breach by committing offence 123. Section 45 applies where a person breaches a liberation condition by committing an offence and the fact that the offence was committed whilst the person was subject to a liberation condition is specified in the complaint or indictment. This is distinct from failing to comply with a condition and applies where the person is being prosecuted for the offence committed while on liberation conditions Section 45(2) requires the court, in determining the penalty for the offence, which constituted the breach of condition, to have regard to the matters specified Section 45(3) and (4) enable the court to increase the maximum penalty otherwise specified for the offence. This provision effectively displaces the maximum penalty, allowing the court to add to the penalty to take account of the fact that a breach of conditions has occurred as a consequence of the commission of an offence Section 45(5) requires the court to explain the reasons for the penalty imposed for the offence, whether it imposes an increased penalty or not. Section 46 Matters for section 45(2)(b) 127. Where a person breaches an investigative liberation condition, as defined in section 49(a), by committing an offence, the court must have regard to the matters specified in section 46 in determining the penalty. Section 47 Matters for section 45(2)(c) 128. Where a person breaches the terms of an undertaking, as defined in section 49(c), (other than the requirement to appear to court) by committing an offence, the court must have regard to the matters specified in section 47 in determining the penalty. Section 48 Evidential presumptions 129. In proceedings relating to an offence under section 43(breach of liberation conditions), the evidential presumptions sets out in section 48 apply. 18
19 Chapter 8 General Common law and enactments Section 50 Abolition of pre-enactment powers of arrest 130. Section 50 provides that the only power of arrest which the police have to bring a person into police custody comes from Section 1 of this Bill and Section 41(1) of the Terrorism Act Section 51 Abolition of requirement for constable to charge 131. Section 51 provides that a constable does not have to charge a suspect with a crime at any time and abolishes any rule of law that requires such a charge to be made. Section 52 Consequential modification 132. Section 52 provides that schedule 1 to the Bill contains details of changes to existing legislation as a consequence of Part 1. Paragraph 242 provides further detail in regard to schedule 1. Disapplication of Part Section 53 Disapplication to terrorism offences 133. Section 53 provides that Part 1 of the Bill, dealing with arrest and custody, does not apply to persons arrested under the Terrorism Act Interpretation of Part Section 54 Meaning of constable 134. Section 54 defines the meaning of constable for the purposes of this Part. Section 55 Meaning of officially accused 135. Section 55 defines the meaning of the term officially accused for the purposes of this Part. Section 56 Meaning of police custody 136. Section 56 defines the meaning of police custody for the purposes of this Part. Part 2 Corroboration and statements Abolition of corroboration rule Section 57 Corroboration not required 137. Section 57 provides that, subject to the conditions set out in sections 58 and 59, where a fact has been established by evidence in any criminal proceedings, the judge or jury is entitled to find the fact proved by the evidence although the evidence is not corroborated. 19
20 138. The effect of this provision is to abolish the requirement in Scots common law that the essential facts of a case must be proven by corroborated evidence, which is to say evidence from two separate sources. Section 58 Effect of other enactments 139. Section 58 provides that the removal of the requirement for corroboration does not apply where an enactment specifically provides that, in relation to proceedings for an offence, a fact requires to be proven by corroborated evidence (for example, section 89(2) of the Road Traffic Regulation Act 1984, which provides that a person cannot be convicted for speeding on the uncorroborated evidence of one witness that the person was breaking the speed limit). Section 59 Relevant day for application 140. Section 59 provides that section 57 only applies in relation to proceedings for an offence committed on or after the date on which section 57 comes into force. The date on which section 57 comes into force will be specified by the Scottish Ministers in an order under section 90(2). Section 60 Deeming as regards offence 141. Section 60 provides that where an offence is committed over a period of time which includes the date on which section 57 comes into force, the requirement for corroborative evidence does not apply to the offence as a whole; meaning that corroborative evidence is not needed to prove those parts of the offence which took place before the date on which section 57 comes into force. Section 61 Transitional and consequential 142. Section 61 introduces schedule 2, which contains transitional and consequential provision relating to the removal of the requirement for corroboration. Schedule 2 is explained in paragraphs 243 to 247 of these Notes Section 61(3) provides that the consequential modifications provided for in Part 2 of schedule 2 only have effect in relation to criminal proceedings to which section 57, removing the requirement for corroboration, applies. Statements by accused Section 62 Statements by accused 144. Section 62 inserts new section 261ZA into the Criminal Procedure (Scotland) Act 1995 ( the 1995 Act ). New section 261ZA will modify the common-law rule on the admissibility of hearsay evidence in criminal proceedings, as it applies to certain types of statement made by an accused Section 261ZA(1) and (2) provide that evidence of a statement made by an accused in certain circumstances is not inadmissible as evidence of a fact contained in the statement on account of the evidence being hearsay. The provision applies to a statement made by the accused in the course of being questioned (whether as a suspect or not) by a constable or another official investigating an offence. 20
21 146. The provision modifies the law relating to hearsay. As explained by the High Court of Justiciary in Morrison v HM Advocate 1991 SLT 57, The general rule is that hearsay, that is evidence of what another person has said, is inadmissible as evidence of the facts contained in the statement. That general rule is subject to exceptions. The existing common-law exceptions (discussed in McCutheon v HM Advocate 2002 SLT 27) allow for a statement made by the accused to be admitted as evidence of a fact contained in the statement if it is inculpatory of the accused (e.g. a confession) or mixed (e.g. a statement in which the accused puts himself or herself at the locus at the time the offence was committed, but does so in the context of proffering an innocent explanation for why the accused was there). The common-law does not, however, allow evidence of a statement made by the accused to be admitted as evidence of a fact asserted in the statement if the statement is purely exculpatory of the accused Subject to subsection (3), section 261ZA extends the exceptions by dispensing with the distinctions between inculpatory, exculpatory and mixed statements. The effect is that any statement made by an accused person to a constable or another official investigating an offence is excepted from the general rule that hearsay evidence is not admissible as evidence of a fact contained in the statement, regardless of whether it is inculpatory, exculpatory or mixed By virtue of subsection (3), section 261ZA does not affect the admissibility of evidence of a statement made by an accused as evidence in relation to a co-accused. Section 261 of the 1995 Act lays down special rules which apply before hearsay evidence of a statement by one accused can be admitted in evidence in relation to another accused. Those rules will continue to apply before evidence of a statement made by accused A can be treated as evidence of fact in the case for or against accused B New section 261ZA is restricted in its effect to superseding objections to the admissibility of evidence based on its hearsay quality. The provision does not override any other objections to the admissibility of evidence of a statement, such as objections to its admissibility based on the fairness of the circumstances in which the statement was made, or based on the content of the statement (for example, section 274 of the 1995 Act, which concerns the admissibility of evidence relating to the sexual history or character of a complainer in a sexual offence case, will still apply). Part 3 Solemn procedure Section 63 Proceedings on petition 150. Section 63 changes the procedure to be followed at what are usually the first court appearances of a person being prosecuted under solemn procedure, when the person appears on petition The purpose of these provisions is to abolish the procedure, commonly known as judicial examination, whereby the prosecutor can, at the commencement of a case being prosecuted under solemn procedure, question the accused in the presence of the sheriff. In addition, the section 63 removes the rarely-used option for the accused to make a declaration broadly, a statement of his or her position in respect of the charge or charges on the petition at that stage in proceedings. 21
22 152. Subsection (1) inserts a provision into the Criminal Procedure (Scotland) Act 1995 ( the 1995 Act ) which removes the accused s common-law right to be given the opportunity to make a declaration at the commencement of a case being prosecuted under solemn procedure Subsection (2) both removes from statute various provisions which relate to declarations, and abolishes the procedure known as judicial examination Subsection (2)(a) removes, from the 1995 Act, provisions which govern the making of declarations, and the right of the prosecutor to question the accused on extra-judicial confessions Subsection (2)(b) removes from the 1995 Act three sections which enable and regulate procedure at judicial examinations. By so doing, it abolishes the procedure Subsections (2)(c), (2)(d), and (2)(e) remove from the 1995 Act various provisions in respect of any records made of a judicial examination. These changes are consequential to the abolition of the judicial examination procedure by subsection (2)(b). Section 64 Citation of jurors 157. Section 64 removes from section 85(4) of the Criminal Procedure (Scotland) Act 1995 the requirement to cite potential jurors by registered post or recorded delivery. It thereby allows potential jurors to be cited by any means the sheriff clerk thinks appropriate, which may include electronic means. Section 65 Pre-trial time limits 158. Sections 65 to 67 make changes to the procedure followed in proceedings on indictment in the sheriff court Section 66 introduces a requirement on the prosecution and the defence to communicate and to lodge a written record of their state of preparation in advance of the first diet Section 67 provides that the arrangement by which a sheriff court indictment assigns dates for both the first diet and the trial ceases to have effect. Instead the court will appoint a trial diet at the first diet, or at a continuation of it, having ascertained the parties state of preparation Section 65 makes changes to the time limits prescribed in section 65 of the Criminal Procedure (Scotland) Act 1995 ( the 1995 Act ) which are intended to allow time for the procedure set out in section 66. In particular the period during which the accused can be remanded in custody pending a first diet and trial are brought in line with the corresponding High Court limits to reflect the altered pre-trial procedure Subsection (2) amends section 65 of the 1995 Act to set out revised time limits for various procedural steps in proceedings on indictment in the sheriff court The amendments made by subsection (2)(a) and (b) prevent the accused being tried on indictment in the sheriff court where the first diet is not commenced within 11 months of the first 22
23 appearance on petition. That period can be extended by the court under section 65(3) of the 1995 Act. The 12-month period within which the trial must be commenced, as specified in section 65(1)(b) of the 1995 Act is unaffected. The amended provisions mirror the equivalent arrangements for proceedings in the High Court Subsection (2)(c) amends the provisions in section 65(4) of the 1995 Act concerning the periods during which the accused person who is committed until liberated in due course of law (i.e. imprisoned to await the outcome of a trial) can be detained by virtue of that committal where an indictment has been served in respect of the sheriff court. The effect of the amendment is that the accused person must be liberated after 110 days, if no first diet has been held, and 140 days if such a diet has been held, unless the trial begins within that period. These periods can be extended by the court under section 65(5) of the 1995 Act. Again, the amended provisions mirror High Court procedure. To assist in the calculation of the time period, subsection (2)(d) amends section 65(9) of the 1995 Act to provide that the first diet in the sheriff and jury court shall be taken to commence when it is called Subsection (3) amends section 66(6) of the 1995 Act to replace the arrangements whereby an accused person is to be tried on indictment in the sheriff court is given notice of the first diet and trial diet at the same time as being served with the indictment. Instead, the accused will be given notice only of the first diet and the date of the trial diet will be fixed at the first diet. The period within which the first diet must take place will be increased from 15 clear days from the service of the indictment to 29 clear days; this change makes the sheriff court practice consistent with High Court practice Subsection (4) amends section 72C(4) of the 1995 Act for consistency with the amendment made by subsection (3). Section 72C(4) is a provision in similar terms to section 66(6), it deals with the situation where a fresh indictment has to be served on an accused because a preliminary hearing before the High Court either did not take place when it was supposed to, or was deserted for the time being without another hearing being appointed. Section 66 Duty of parties to communicate 167. Section 66 amends the Criminal Procedure (Scotland) Act 1995 ( the 1995 Act ) to impose a duty on the prosecution and the defence, in cases indicted to the sheriff court, to communicate and to prepare a written record of their state of preparation Subsection (2) amends section 71 of the 1995 Act by inserting a new subsection (1ZA) which requires the court to have regard to the written record when ascertaining the parties state of preparation at the first diet Subsection (3) inserts a new section 71C into the 1995 Act. Subsection (2) of this new section requires the prosecutor and the accused s legal representative (as defined in subsections (8) and (9)) to communicate and jointly to prepare a written record of the state of preparation of their respective cases. The requirement arises where the accused is indicted to the sheriff court and is represented by a solicitor (new section 71C(1)). 23
24 170. Subsection (3) of the new section 71C provides that the period within which the communication must take place, and within which the written record of the state of preparation must be prepared is the period beginning with the service of the indictment and ending 14 days later. Subsection (4) provides that the written record thus established must be lodged with the sheriff clerk at least two days before the first diet, though the court may, on cause shown, extend this deadline (subsection (5)) Subsection (6) of the new section 71C provides for the form, content, and arrangements for lodging of the written record, to be prescribed under an Act of Adjournal. Subsection (7) provides that the record must include a statement of how the communication required by this new section took place. Subsection (7) gives examples of the means by which the communication may take place, but the examples are not exhaustive of the means that might be employed Section 66(4) of the Bill amends section 75 of the 1995 Act to include a reference to the period mentioned in section 71C. This ensures that, where the 14 day period referred to in section 71C(3) ends on a weekend or on a court holiday, it is extended to include the next day that is not a Saturday, Sunday or court holiday. Section 67 First diets 173. Section 67 deals with the procedure at first diets in proceedings on indictment in the sheriff court Subsection (2) amends section 66 of the Criminal Procedure (Scotland) Act 1995 ( the 1995 Act ). Subsection (2)(a) requires the notice served on the accused with the indictment to include a warning to the accused that the first diet may proceed in his or her absence and that a trial diet may be fixed in his or her absence. This is distinct from the intimation that requires to be given by virtue of section 66(6AA) where the accused is a body corporate. However, even if the notice does not contain this warning, the amendment to section 66(6B) of the 1995 Act made by subsection (2)(b) ensures that the validity of the notice, and other procedure against the accused, is not invalidated by the omission Subsection (3) amends section 71 of the 1995 Act. The amendments provided for in subsection (3)(a), (b) and (d) are consequential on the new arrangements whereby the trial diet is appointed at the first diet (see discussion below of new section 71B). Subsection (3)(c) ensures that the requirement in section 71(6) that the accused should be called upon to plead at the first diet does not prevent the first diet proceeding in the absence of the accused. Subsection (3)(e) extends to the new section 71B discussed below the definition of the word court in section 71 of the 1995 Act, so that in the new section 71B references to the court will be understood as references to the sheriff court only Subsection (4) inserts a new section 71B into the 1995 Act, to deal with appointment of a trial diet at the first diet Subsection (1) of the new section 71B provides that, having taken the steps and examined the issues required at the first diet, the court only then goes on to appoint a trial. The appointing 24
25 of a trial has to be in accordance with subsections (3) to (7), which are discussed below. Subsection (2) requires the accused to appear at the trial diet Subsections (3) and (4) of the new section 71B apply when a case is subject to the requirement that the trial must commence within 12 months of the accused s first appearance on petition. If the court considers that the case would be likely to be ready to proceed to trial within the 12 months (which may not be 12 months from the petition appearance, because the period can be extended under section 65(3) of the 1995 Act) the court must, subject to subsections (5) to (7) appoint a trial within the 12 month period. If the court does not think the case will be ready to proceed within the 12 months, the prosecutor must be given an opportunity to seek an extension of the 12 month period. If an extension is granted the court must, again subject to subsections (5) to (7), appoint a trial within the 12 month period as extended. If the period is not extended the court may desert the first diet (either permanently or for the time being only) and if the accused is being held in custody pending trial, the accused must be liberated Subsections (5) to (7) of the new section 71B apply where, in addition to the court being required to appoint a trial diet within the 12 month period under subsection (3) or (4), the accused has been committed until liberated in due course of law (i.e. imprisoned to await the outcome of a trial) and cannot be detained by reason of that committal for more than 140 days without being put on trial. In that event, as well as appointing a trial diet within the 12 month period, the court must appoint a trial within the 140 day period if it is satisfied that the case will be ready to go to trial within that period. If the court is not satisfied about that, the prosecutor must be given an opportunity to apply for an extension of the 140 day period. If an extension is granted the court must appoint a trial for a date within the 140 day period as extended (as well as within the 12 month period). If the period is not extended the accused is entitled to be admitted to bail. In that event, subsection (8) requires the court to give the prosecutor an opportunity to be heard before admitting the accused to bail Where the court has appointed a trial diet for an accused on bail (other than in the circumstances where the accused has been bailed as described in the previous paragraph) subsection (9) of the new section 71B requires that the court must review the accused s bail conditions and empowers it, if it considers it appropriate, to set different conditions Subsection (10) of the new section 71B defines the 12 month and 140 day time limits with reference to the applicable provisions of section 65 of the 1995 Act Subsection (5) of section 67 amends section 76(3) the 1995 Act which makes provision for the situation where a diet fixed as a result of an intimation given by the accused under section 76(1) (that he intends to plead guilty) does not result in pleas being accepted in respect of all charges. The amendment allows the court to postpone a first diet where a case has been indicted to the sheriff court on the same basis as the power to postpone a preliminary hearing where the case has been indicted to the High Court Subsection (6) inserts a new section 83B into the 1995 Act applying to jury trials in the sheriff court. The section allows trials that have not yet been commenced to be continued from sitting day to sitting day, up to a maximum number of sitting days after the day originally appointed for the trial, the maximum being set by Act of Adjournal. Failure to commence the 25
26 trial by the end of the last sitting day permitted results in the indictment falling and proceedings against the accused coming to an end. Section 68 Preliminary hearings 184. Section 68 reverses the effect of amendments to section 72A of the Criminal Procedure (Scotland) Act 1995 effected by section 7(3) of the Vulnerable Witnesses (Scotland) Act The amendments, which relate to proceedings in the High Court, were mistakenly applied after the section to which they related was repealed by the Criminal Procedure (Amendment) (Scotland) Act 2004, and replaced with another section with the same number. Section 69 Plea of guilty 185. Section 69 repeals that part of section 77(1) of the Criminal Procedure (Scotland) Act 1995 ( the 1995 Act ) which requires that the accused pleading guilty to an indictment should sign a copy of the plea. Section 70(7) of the 1995 Act, which provides for an exception to the signing requirement where the accused pleading guilty is an organisation, is thereby rendered obsolete and is also repealed. Section 70 Guilty verdict 186. Section 70 amends the law concerning the size of the majority required for a jury to return a verdict of guilty, in both the High Court and the sheriff court Subsection (1) repeals section 90(2) of the Criminal Procedure (Scotland) Act 1995 ( the 1995 Act ) which prescribes conditions for the returning of a verdict of guilty where the size of the jury in a criminal trial falls below Subsection (2) inserts new section 90ZA into the 1995 Act. Section 90ZA(1) provides that a jury of 15 members may return a verdict of guilty only if at least 10 of them are in favour of that verdict Section 90ZA(2) sets out the number of jurors required to return a verdict of guilty where the jury size falls below 15. In each case, a majority of at least two thirds of the jurors is required Section 90ZA(3) provides that a jury is to be regarded to have returned a verdict of not guilty if it does not return a verdict of guilty in accordance with subsection (1) or (2) and there is no majority in favour of either a not guilty or not proven verdict. Part 4 Sentencing Maximum term for weapons offences Section 71 Maximum term for weapons offences 191. The Criminal Law (Consolidation) (Scotland) Act 1995 creates the following offences: carrying an offensive weapon in a public place (section 47); 26
27 possessing an article with a blade or point in a public place (section 49); possessing an article with a blade or point (or weapons) on school premises (section 49A); having an offensive weapon etc. in prison (section 49C) Section 71 of the Bill increases the maximum penalty for each of those offences from 4 to 5 years. Prisoners on early release Section 72 Sentencing under the 1995 Act 193. Section 72 of the Bill inserts a new section 200A into the Criminal Procedure (Scotland) Act 1995 ( the 1995 Act ). New section 200A(1) of the 1995 Act provides that when the court is dealing with a person who has been found to have committed an offence that is capable of being punishable with imprisonment (except where the offence is such that the court is required to impose a life sentence), the court must so far as is reasonably practicable ascertain whether the person was on early release from a previous sentence at the time the offence was committed Part I of the Prisoners and Criminal Proceedings (Scotland) Act 1993 ( the 1993 Act ), Part II of the Criminal Justice Act 1991 or Part 12 of the Criminal Justice Act 2003 provide for the operation of release from custody of a prisoner prior to the end of a prisoner s sentence. The operation of these provisions is commonly known as early release arrangements. For the purposes of new section 200A, new section 200A(3) provides that a person is on early release if they are not in custody as a result of the operation of Part I of the 1993 Act, Part II of the Criminal Justice Act 1991 or Part 12 of the Criminal Justice Act Section 16 of the 1993 Act provides the court with a power to be able to punish a person who commits an offence while on early release. This power is separate and additional to the normal powers of the court to sentence the person for having committed the offence. These powers are commonly known as section 16 orders and can be seen as a punishment on a person for having abused the trust placed in them by committing an offence while on early release New section 200A(2) provides that where the court has determined under new section 200A(1) that a person was on early release at the time the offence was committed, the court must consider making a section 16 order New section 200A(2) also provides that in the case where the court dealing with the offence is inferior to the court which imposed the previous sentence from which the person was released early, an inferior court must consider making a reference to the court which imposed the previous sentence so that they can consider making a section 16 order. This is subject to the new powers being given to inferior courts to make section 16 orders contained in section 73(4) of the Bill. 27
28 Section 73 Sentencing under the 1993 Act 198. Where an offence ( the new offence ) has been committed while a person was on early release, section 16(2) of the 1993 Act provides that a Scottish court may, instead of or in addition to imposing a sentence for plea or finding of guilt, order that a person may be returned to prison for a period of time. This period can be up to a maximum length equal to the period of time between the date on which the new offence was committed and the date of the expiry of their previous sentence. Section 16(2)(b) of the 1993 Act provides that where the court dealing with the new offence is inferior to the court which imposed the sentence from which the person was released early, the inferior court cannot directly impose a section 16 order and can only refer the case to the higher court for consideration to be given as to whether a section 16 order should be imposed Section 73(2) of the Bill adjusts section 16(1) of the 1993 Act so that prisoners released early under Part 12 of the Criminal Justice Act 2003 can have section 16 orders imposed upon them Section 73(4) of the Bill inserts new section 16(2A) into the 1993 Act. New section 16(2A) provides new discretion for courts dealing with persons who have committed offences while on early release from a previous sentence imposed by a higher court. The effect of the new discretion is that inferior courts will be able to consider making a section 16 order in such cases The powers of inferior courts to impose section 16 orders are restricted to those cases where the maximum length of a section 16 order does not exceed the sentencing powers of the court in respect of common law offences. Section 7(6) of the 1995 Act provides that a Justice of the Peace court can impose a custodial sentence for common law offences of up to 60 days. Section 5(2) of the 1995 Act provides a sheriff summary court, including when constituted by a stipendiary magistrate (by virtue of section 7(5) of the 1995 Act), can impose a custodial sentence for a common law offence of up to 12 months. Section 3(3) of the 1995 Act provides a sheriff solemn court can impose a custodial sentence for a common law offence of up to 5 years New section 16(2A)(b)(i) provides that a Justice of the Peace court, except when constituted by a stipendiary magistrate, will be able to impose a section 16 order in cases where the maximum length of a section 16 order does not exceed 60 days New section 16(2A)(b)(ii) provides that a Justice of the Peace court constituted by a stipendiary magistrate or a sheriff sitting summarily (i.e. without a jury) will be able to impose a section 16 order in cases where the maximum length of a section 16 order does not exceed 12 months New section 16(2A)(b)(iii) provides that a sheriff sitting as a court of solemn jurisdiction (i.e. with a jury) will be able to impose a section 16 order in cases where the maximum length of a section 16 order does not exceed 5 years Section 73(3) makes consequential changes to section 16(2) reflecting the insertion of new section 16(2A) into the 1993 Act. 28
29 Part 5 Appeals and SCCRC Appeals Section 74 Preliminary pleas in summary cases 206. Section 174 of the Criminal Procedure (Scotland) Act 1995 ( the 1995 Act ) allows for decisions disposing of certain objections and denials in summary proceedings, including objections to the competency and relevancy of the complaint, to be appealed to the High Court where the first instance court gives permission for the appeal. Section 74 of the Bill amends section 174 of the 1995 Act by removing the requirement to obtain permission for an appeal by the prosecutor against a decision that has resulted in the dismissal of the complaint, or any part of it. Section 75 Preliminary diets in solemn cases 207. Section 74 of the Criminal Procedure (Scotland) Act 1995 ( the 1995 Act) allows for decisions taken at first diets and preliminary hearings to be appealed to the High Court where the first instance court gives permission for the appeal. Section 75 of the Bill amends section 74 of the 1995 Act by removing the requirement to obtain permission for an appeal by the prosecutor against a decision that has resulted in the dismissal of the indictment, or any part of it. Section 76 Extending certain time limits: summary 208. Section 76 amends section 181 of the Criminal Procedure (Scotland) Act 1995 Act ( the 1995 Act ) so as to make further provision concerning applications to extend certain time limits that apply in relation to appeals from summary proceedings Subsection (2) inserts provisions prescribing the test to be applied by the High Court when determining an application to extend the period within which a convicted person may apply for a stated case. Subsections (3) and (4) omit the provisions under which the respondent in relation to an application under section 181(1) of the 1995 Act may insist on a hearing. Subsection (5) inserts section 181(5) which requires the court to give reasons in writing for a decision to extend a period on an application under section 181(1) By virtue of section 186(8) of the 1995 Act, the amendments effected by section 76 of the Bill also have effect in relation to certain applications to extend the period allowed for the lodging of a note of appeal under section 186. Section 77 Extending certain time limits: solemn 211. Section 77 makes provision concerning applications to the High Court under section 111(2) of the Criminal Procedure (Scotland) Act 1995 ( the 1995 Act ) applications to extend the period within which a convicted person may lodge intimation of intention to appeal, or a note of appeal Subsections (3) to (6) amend section 111. Subsection (3) inserts provisions prescribing the test to be applied by the High Court when determining an application under section 111(2) when it is received after the expiry of the period to which it relates. Subsection (4) amends 29
30 section 111(2A) so as to extend to every application under section 111(2) the requirement on the applicant to state reasons for the failure to comply with the applicable time limit and to state the proposed grounds of appeal. Subsection (6) inserts section 111(4) which provides that applications under section 111(2) are to be dealt with in chambers and, unless the court otherwise directs, without parties being present. Subsections (1) and (5) contain amendments that are consequential on this change. Subsection (6) also inserts section 111(5) which requires the court to give reasons in writing for a decision to extend a period. Section 78 Certain lateness not excusable 213. Section 78 amends section 300A of the Criminal Procedure (Scotland) Act 1995 by inserting a new subsection (7A). Section 300A gives courts a general power to excuse failures to comply with procedural requirements. The amendment precludes a failure to timeously lodge certain documents from being excused under section 300A. The documents in question are those which the High Court can permit being lodged late by applying the tests that are to be amended by sections 76 and 77 of the Bill (i.e. documents used to initiate appeals from, respectively, summary and solemn proceedings). Section 79 Advocation in solemn proceedings 214. Section 79 inserts section 130A into the Criminal Procedure (Scotland) Act 1995, which provides that it is not competent for a decision taken at a first diet or preliminary hearing to be appealed to the High Court by bill of advocation. The provision excludes bill of advocation as a competent method of appealing a decision that could be appealed under the procedure provided for in section 74 of the 1995 Act. Section 80 Advocation in summary proceedings 215. Section 80 inserts section 191B into the Criminal Procedure (Scotland) Act The new section applies to decisions disposing of certain objections and denials which require to be stated before a plea is tendered in summary proceedings, including objections to the competency or relevancy of a complaint. Such decisions can be appealed to the High Court under the procedure provided for in section 174 of the 1995 Act. The new section provides that such decisions cannot also be competently appealed by way of bill of advocation. Section 81 Finality of appeal proceedings 216. Section 81(1) amends section 124(2) of the Criminal Procedure (Scotland) Act 1995 ( the 1995 Act ) (as amended by section 36(11) of the Scotland Act 2012) by removing references to section 288ZB of the 1995 Act Section 81(2) inserts a new section 194ZA into the 1995 Act. Subject to the exceptions specified, the new section provides that decisions of the High Court when disposing of an appeal related to summary proceedings are final and conclusive and not subject to review by any court whatsoever. The new section is in similar terms to the corresponding provision in section 124(2) of the 1995 Act, which relates to decisions of the High Court when disposing of appeals from solemn proceedings. 30
31 SCCRC Section 82 References by SCCRC 218. Section 82 of the Bill amends the Criminal Procedure (Scotland) Act 1995 to adjust how the High Court considers cases referred to it by the Scottish Criminal Cases Review Commission ( the SCCRC ) Section 82(2) of the Bill inserts new subsection (1A) into section 194B of the 1995 Act and provides that the High Court can only quash a conviction or sentence if it is satisfied that it is in the interests of justice to do so. New subsection (1B) provides that when the High Court is considering the interests of justice, they must have regard to the requirement for finality and certainty in the determination of criminal proceedings Section 82(4) of the Bill repeals section 194DA of the 1995 Act so that the High Court will no longer have the power to reject a SCCRC reference without hearing the appeal The overall effect of section 82 is that the High Court will apply the interests of justice test alongside hearing an appeal based on a SCCRC reference, rather than applying the interests of justice in order to decide whether to allow an appeal based on a SCCRC reference to be heard. Part 6 Miscellaneous Chapter 1 Procedural matters Aggravation as to people trafficking Section 83 General aggravation of offence 222. Section 83 makes provision for a statutory aggravation which applies in cases where an accused commits an offence connected with people trafficking. Subsection (1) applies where an indictment or complaint libels or specifies that an offence is aggravated by a connection with people trafficking activity and it is subsequently proved that the offence is aggravated in that way Subsection (2) sets out the circumstances in which an offence can be regarded to have been aggravated by a connection with people trafficking. This relies on proof that the accused was motivated, in whole or in part, by the objective of committing or conspiring to commit a people trafficking offence. In terms of subsection (3), it is not material to establishing the aggravation whether or not a people trafficking offence (as defined in section 85(1)) was committed at any time or by the offender or another specific person 224. Subsection (4) sets out the steps the court must take when it is libelled in an indictment or specified in a complaint that an offence is aggravated by a connection with people trafficking and proved that the offence is so aggravated. In addition to a number of formal matters, the court must take the aggravation into account in determining the appropriate sentence. 31
32 Section 84 Aggravation involving public official 225. Section 84 makes similar provision about a statutory aggravation which applies in cases where a public official, acting or purporting to act in the course of official duties, commits a people trafficking offence. Section 85 Expressions in sections 83 and Section 85(1) defines people trafficking offences for the purpose of sections 83 and 84. Subsection (2) defines those to be considered as a public official for the purposes of section 84 while subsection (3) defines the term an international organisation Subsection (4) enables the Scottish Ministers to modify by regulations the offences considered to be people trafficking offences, the definition of who is a public official and the definition of an international organisation. Use of live television link Section 86 Use of live television link 228. Subsection (1) of section 86 inserts sections 288H to 288K into the Criminal Procedure (Scotland) Act The new sections (discussed in greater detail in the following paragraphs) make provision for the participation of detained persons in hearings by means of live television link from the place of detention Subsection (2) repeals enactments in consequence of the new sections of the 1995 Act inserted by subsection (1). Specifically, paragraph (a) repeals section 117(6) of the 1995 Act, which requires an appellant in an appeal from solemn proceedings to appear before the court in ordinary civilian clothes. Paragraph (b) repeals section 80 of the Criminal Justice (Scotland) Act 2003, which allowed certain court appearances to be conducted by means of live television link and is rendered obsolete by the wider reaching new sections inserted by section 86 of the Bill. Inserted section 288H Participation through live television link 230. Subsection (1) requires a detained person to participate in a specified hearing (defined by inserted section 288J) by means of live TV link where the court has determined that the hearing should proceed in that manner. Before so determining, subsection (2) requires the court to give the parties an opportunity to make representations on the use of the TV link in the hearing. The court can only allow the hearing to proceed by TV link if satisfied that it is not contrary to the interests of justice to do so Subsection (3) gives the court the power to require a detained person to appear by TV link from the place where the person is in custody at an ad hoc hearing for the sole purpose of considering whether to make a determination on the use of TV links Where a detained person participates in a hearing by means of a TV link, the effect of subsection (4) is that the place of detention is deemed part of the court room, so that the hearing is deemed to take place in the presence of the detained person. 32
33 Inserted section 288I Evidence and personal appearance 233. Subsection (1) precludes evidence as to the charge against the detained person being led at a hearing in which the detained person is participating by means of a TV link. It would therefore not be possible for a trial to proceed with the accused participating by TV link Subsection (2) gives the court the power to revoke, before or during a hearing, a determination (under section 288H(1)) that the accused is to participate at the hearing by TV link. Subsection (2)(b) requires that the court exercise the power to revoke the determination if it considers that it is in the interests of justice for the detained person to appear in person. For example, a problem with the technology arises unexpectedly and the court is not satisfied that it can clearly see or hear the detained person Subsection (3), read in conjunction with subsection (4), allows the court to postpone a hearing to the next day which is not a Saturday, Sunday or court holiday, if it decides either to revoke a determination under section 288H(1) or not to make a determination on the day a specified hearing takes place or is due to take place. Such a postponement does not count towards any statutory time limits applicable in the case, such as the time limits for detaining a person in custody pending a first diet or preliminary hearing. However, by virtue of subsection (5), the power cannot be used to postpone a hearing in which a person makes their first appearance from police custody. Inserted section 288J Specified hearings 236. Subsection (1) confers on the Lord Justice General the function of specifying the categories of hearings, such as the first appearance, at which a detained person may participate by live television link. Hearings may be specified by reference to the venues at which hearings take place (subsection (2)(a)), particular places of detention (subsection (2)(b)), or the types of cases or proceedings in which TV links can be used (subsection (2)(c)). Under subsection (3)(a) the Lord Justice General can vary or revoke any earlier directions and make different provision for different purposes (subsection (3)(b)). Inserted section 288K Defined terms 237. This section defines certain terms used within sections 288H to 288J. The expression detained person is defined so that the person imprisoned or lawfully detained at a location in Scotland. The concept of lawful detention is a broad one, it includes detention at a police station pending first appearance at court, detention in hospital by virtue of an assessment order or a treatment order imposed under the 1995 Act, detention in hospital under the Mental Health (Care and Treatment) (Scotland) Act 2003, or a young person s detention in local authority secure accommodation. Chapter 2 Police Negotiating Board for Scotland Section 87 Establishment and functions 238. Section 87 inserts a new Chapter 8A into the Police and Fire Reform (Scotland) Act 2012 ( the 2012 Act ) to provide for a Police Negotiating Board for Scotland (PNBS). New section 55A provides for the Board to be established, and introduces a new schedule 2A to make further 33
34 provision about it. New schedule 2A is set out in schedule 3 to the Bill (see paragraphs 248 and 249 for further discussion) New section 55B provides that the PNBS may make representations to the Scottish Ministers about pay, allowances and expenses, public holidays and leave, the issue, use and return of police clothing and equipment, and hours of duty, in relation to constables (other than special constables) and cadets. Such representations may be made about draft regulations or determinations on these issues, or generally. The Scottish Ministers may, after consultation with the chairperson, require the PNBS to make representations about these matters within a set time period New section 55C provides that the PNBS may also make representations to the Scottish Ministers about other matters relating to the governance, administration and conditions of service of constables (other than special constables) and police cadets including draft regulations on such matters. New section 55D requires the PNBS to produce an annual report on how it has carried out its functions. The annual report is to be given to the Scottish Ministers and published Subsection (2) amends section 54 of the 2012 Act to require the Scottish Ministers to consult the PNBS before making regulations about the matters mentioned in new section 55B(4). Schedule 1 Modifications in connection with Part Schedule 1 makes amendments to existing legislation as a consequence of specific elements of the Bill. Part 1 makes provision for the repeal of various enactments conferring a power to arrest without warrant, which are affected by the new power of arrest for the police set out in section 1 of the Bill. Part 2 makes provision for the repeal of enactments affected by the new arrangements for police custody and access to legal advice set out in Part 1 of the Bill. Schedule 2 Modifications in connection with Part Schedule 2 makes transitional and consequential provision arising from section 57, which abolishes the requirement for corroboration Paragraphs 1 and 2 make transitional provision in respect of the people trafficking aggravations provided for in sections 83 and 84. The effect is that even before section 57 comes into force and abolishes the requirement for corroborative evidence at large, corroborative evidence will not be required to prove an aggravation under either section Paragraphs 3 and 4 provide that the removal of the requirement for corroboration in criminal proceedings by section 57, will also apply to sheriff court proceedings under section 68(3) of the Children (Scotland) Act 1995, to determine whether offence grounds for a referral to a children s hearing have been established. This is a transitional provision. The Children s Hearings (Scotland) Act 2011 ( the 2011 Act ) will repeal section 68(3) but some proceedings under the section may continue as part of the transitional arrangements for the 2011 Act. Once all proceedings under section 68(3) are concluded, paragraphs 3 and 4 of the schedule will cease to apply. 34
35 246. Paragraph 21 inserts a new subsection into section 102 of the Children s Hearings (Scotland) Act 2011 providing that section 57, which abolishes the requirement for corroborative evidence in criminal proceedings, applies where an application is made to a sheriff to determine whether offence grounds for referral to a children s hearing under section 67(2)(j) of the 2011 Act are established Paragraphs 5 to 20 and 22 to 24 make provision in consequence of section 57. Certain statutory exceptions to the requirement for corroborative evidence presently exist. Once section 57 abolishes the requirement for corroborative evidence in criminal proceedings generally, the specific exceptions will be redundant. Part 2 of the schedule therefore removes from the statute book the existing exceptions to the general requirement for corroborative evidence. Schedule 3 Police Negotiating Board for Scotland 248. Schedule 3 inserts schedule 2A into the Police and Fire Reform (Scotland) Act Paragraph 1 establishes that the PNBS is not a Crown servant and has no Crown status, immunity or privilege. Paragraph 2 sets out the membership of the PNBS. It is to consist of a chair and deputy chair appointed by the Scottish Ministers, and other persons representing the Scottish Ministers, the Scottish Police Authority, the chief constable, constables (other than special constables) and police cadets. Under paragraph 3, MPs, MSPs, MEPs, government Ministers and civil servants will be disqualified from being the chair or deputy chair of the PNBS to ensure that the chair and deputy chair are independent Paragraph 4 provides that the Scottish Ministers are to prepare the constitution for the PNBS, after consulting the other persons to be represented on it. They must keep the constitution under review and may from time to time revise it. This paragraph also sets out what the constitution may include. It must regulate the procedure by which the PNBS reaches agreement on representations to the Scottish Ministers under new section 55B(1), and may require agreement to be reached by arbitration in specified circumstances. Paragraph 5 provides that the Scottish Ministers may pay remuneration to the chair and deputy chair of the PNBS, and expenses to its members. They must also pay such expenses as are necessary to enable the PNBS to carry out its functions. 35
36 FINANCIAL MEMORANDUM INTRODUCTION 1. This document relates to the Criminal Justice (Scotland) Bill introduced in the Scottish Parliament on 20 June It has been prepared by the Scottish Government to satisfy Rule of the Parliament s Standing Orders. It does not form part of the Bill and has not been endorsed by the Parliament. 2. The Policy Memorandum, which is published separately, explains in detail the background to the Criminal Justice (Scotland) Bill and the policy intention behind the Bill. The purpose of this Financial Memorandum is to set out the costs associated with the measures introduced by the Bill, and as such it should be read in conjunction with the Bill and the other accompanying documents. 3. The Bill has been developed around three elements: Implementation of the recommendations of Lord Carloway s review of the criminal justice system as a package of reforms 6 ; Implementation of the recommendations of Sheriff Principal Bowen s Independent Review of Sheriff and Jury Procedure 7 ; and A number of miscellaneous provisions. 4. This Financial Memorandum is structured around these three elements, but this does not translate directly to the structure of the Bill s provisions. Table 1 below sets out the grouping of provisions used in the Financial Memorandum and how that relates to the sections of the Bill. The table also provides an index to where the provisions are covered in this Memorandum. Table 1: cross-references to Bill sections and index to paragraph numbers Provisions as described in Financial Memorandum Relevant sections of Bill Paragraph references in this Memorandum Arrest and detention, period of custody 1-13, 18, 37-41, (general), (SPA) Liberation from police custody 14-17, 19-22, (general), (SPA), (COPFS), (SCS), (SLAB) Legal advice 23-25, 30, (general), (SPA), (SLAB)
37 Provisions as described in Financial Memorandum Relevant sections of Bill Paragraph references in this Memorandum Questioning (general), (SPA), (COPFS), (SCS) Child suspects 31-32, (general), (SPA), (SLAB), (local authorities) Corroboration , 42 (general), (SPA), (COPFS), (SCS), (SPS), (SLAB), 226 (SCRA), (local authorities) Appeals (general), (SLAB) Vulnerable adult suspects (general), (SPA) Exculpatory and mixed statements (general) Finality and certainty 81 41(general) Carloway general All above (general), , (SPA), , 165 (COPFS) Bowen provisions 62, Maximum term for weapons offences Method of juror citation Video links Sentencing on early release People trafficking Police Negotiating Board Tables 2-5, providing an overall summary of the financial impact of the Bill, can be found after paragraph The estimates of costs contained in this memorandum are compiled from information provided by those bodies affected by the Bill. The figures and projections provided are the best estimates available for the costs and income that will be generated as a result of the provisions of this Bill. All costs have been rounded to the nearest 1,000. Figures may not sum due to rounding. 7. This financial memorandum assumes that the Bill provisions will take effect in the financial year
38 OVERVIEW 8. The Bill will have financial implications for a number of bodies. It will primarily affect the Scottish Police Authority ( SPA ), the Crown Office and Procurator Fiscal Service ( COPFS ), the Scottish Legal Aid Board ( SLAB ), the Scottish Court Service ( SCS ), and the Scottish Prison Service ( SPS ). 9. The measures which will have the greatest financial implications are connected with the Carloway provisions, particularly: The removal of the requirement for corroboration; and The provisions on access to legal advice. 10. The Bowen and miscellaneous provisions on the whole have lower financial costs. 11. The tables below summarise the costs of the Bill, differentiating between financial and opportunity costs. Many of the impacts of the Bill take the form of administrative burdens resulting from increased volumes of procedures currently undertaken and the introduction of additional procedures to meet the requirements of the Bill. Where a cost has been established based on additional staff time required to perform a particular new task, or to deal with an increase in case numbers, the Scottish Government anticipates that that this will likely be dealt with through measures such as full use of existing resources, prioritisation of functions, and increased operational efficiency. These are classified as opportunity costs. Only where a specific need for additional staff has been identified, has the cost been identified as an additional financial cost. There are also some one-off capital costs associated with the Bill, for example around the police custody estate. Table 2: total financial costs by organisation Scottish Government [paras 44, 245, 295] SPA [paras , , ] COPFS [paras , , 301] SCS [paras , , , 312] SPS [paras , , , 306] Recurring costs 000 Nonrecurring costs 000 Recurring costs 000 Nonrecurring costs 000 Recurring costs 000 Nonrecurring costs 000 Recurring costs , , (128) 0 (128) 0 (128) 0 (128) 0 (169) 84 (169) 0 (169) 0 (169) Nonrecurring costs
39 SLAB [paras , ] Recurring costs 000 Nonrecurring costs 000 Recurring costs 000 Nonrecurring costs 000 Recurring costs 000 Nonrecurring costs 000 Recurring costs 000 6, , , ,689 0 Nonrecurring costs 000 Local authorities [paras , , 309] Total 6,587 2,703 6,587 1,648 6, ,587 0 Total financial cost 9,290 8,235 6,587 6,587 Table 3: total opportunity costs by organisation Scottish Government [paras 44, 245, 295] SPA [paras , , ] COPFS [paras , , 301] SCS [paras , , , 312] SPS [paras , , , 306] SLAB [paras , ] Recurring costs 000 Nonrecurring costs 000 Recurring costs 000 Nonrecurring costs 000 Recurring costs 000 Nonrecurring costs 000 Recurring costs ,549 9,848 5, , , ,842 1,268 3, , , , , , , , , , , Nonrecurring costs 000 Local authorities [paras , , 309] 1, , , ,244 0 Total 18,848 11,116 26, , ,748 0 Total cost opportunity 29,964 26,685 30,735 34,748 39
40 Table 4: total financial costs by Bill provision Recurring costs 000 Nonrecurring costs 000 Recurring costs 000 Nonrecurring costs 000 Recurring costs 000 Nonrecurring costs 000 Recurring costs 000 Arrest & detention, period of custody Liberation from police custody Legal advice 1,842 1,650 1,842 1,648 1, ,842 0 Questioning Child suspects Corroboration 4, , , ,032 0 Appeals (69) 0 (69) 0 (69) 0 (69) 0 Vulnerable adult suspects Exculpatory and mixed statements Finality and certainty Carloway general Bowen provisions Maximum term for weapons offences Method of juror (169) 0 (169) 0 (169) 0 (169) 0 citation Video links Sentencing on early release People trafficking Police Negotiating Board 8 Total 6,587 2,703 6,587 1,648 6, ,587 0 Total financial cost 9,290 8,235 6,587 6,587 Nonrecurring costs Although there are costs associated with establishing a Police Negotiating Board for Scotland, these are balanced by equivalent savings from discontinuing contributions to the existing Police Negotiating Board. 40
41 Table 5: total opportunity costs by Bill provision Recurring costs 000 Nonrecurring costs 000 Recurring costs 000 Nonrecurring costs 000 Recurring costs 000 Nonrecurring costs 000 Recurring costs 000 Arrest & detention, period of custody Liberation from police 1, , , ,127 0 custody Legal advice Questioning Child suspects Corroboration 14, , , ,874 0 Appeals Vulnerable adult suspects Exculpatory and mixed statements Finality and certainty Carloway general 0 11, Bowen provisions Maximum term for 1, , , ,250 0 weapons offences Method of juror citation Video links Sentencing on early release People trafficking Police Negotiating Board 9 Total 18,848 11,116 26, , ,748 0 Total opportunity cost 29,964 26,685 30,735 34,748 Nonrecurring costs 000 IMPACT 12. Any rise in the overall running costs of relevant organisations will be reviewed as part of the overall planning of the Justice budget. 9 Although there are costs associated with establishing a Police Negotiating Board for Scotland, these are balanced by equivalent savings from discontinuing contributions to the existing Police Negotiating Board. 41
42 13. The opportunity costs associated with the Bill will be for the affected organisation to manage through measures such as full use of existing resources, prioritisation of functions, and increased operational efficiency. 14. A total of 5,549,000 has been identified as recurring opportunity costs for SPA. This is as a result of new processes including investigative liberation and post-charge questioning, as well as increases in case numbers from the removal of the requirement for corroboration. 15. There is also a large one-off opportunity cost of 9,848,000 for SPA. This comprises staff time to attend training on the revised procedures provided for in the Bill. The impact of this should be minimised by ensuring the Bill s provisions are implemented in 2015, when the Commonwealth Games and other major events of 2014 are over, and the normal police training regime resumes. 16. A total of 3,842,000 has been identified as recurring opportunity costs for COPFS. Some of this is from the new processes around challenging of special conditions for liberation from police custody, but the greater part is from the projected increase in cases as a result of the removal of the requirement for corroboration. 17. A total of 1,363,000 has been identified as recurring opportunity costs for SCS, as a result of additional court time for new processes and volume increases. It is anticipated that these will be managed within the available court time. Expected savings in court time from the Bowen provisions have already been applied to this figure. 18. A total of 22,750,000 has been identified as recurring opportunity costs for SPS, as a result of increased prison places, primarily from the removal of the requirement for corroboration. This increase will not take full effect immediately, but will gradually increase up to this level over four to five years. SPS has indicated that additional prison places can be accommodated within existing capacity, but that long term increases may accelerate the rate that the flexibility in the system is used up. This will be kept under review. 19. A total of 1,244,000 has been identified as recurring opportunity costs for local authorities, as a result of increases in community sentences, and provision of social worker support to a minority of 16 and 17 year old suspects. It is anticipated that this will be managed within existing resources. PART A CARLOWAY PROVISIONS OUTLINE OF MEASURES Measures with cost implications 20. Those measures which will have definite financial or opportunity cost implications are outlined below. 42
43 Arrest and detention, period of custody 21. The changes in the Bill to periods of custody include the requirement for a police review at or about six hours after detention and that this review should be carried out by an officer of at least the rank of inspector not directly involved in the investigation. This will have implications for the police in terms of staff time. Liberation from police custody 22. The Bill introduces a new process of investigative liberation from police custody. This will have resource implications for the police in terms of staff time to consider and authorise liberations where conditions are applied, as well as increased numbers of returning prisoners, and increases to persons breaching conditions of undertakings. 23. There are also potential cost implications for COPFS, SLAB and SCS from the application of special conditions to bail, and associated court hearings for challenges to these conditions. This includes additional IT costs for SCS. Legal advice 24. The Bill extends the right to legal advice to suspects detained by the police, regardless of whether questioning takes place. This will likely lead to an increase in requests for legal advice, and this will have cost implications for SLAB, as well as for the police in administering access to solicitors. 25. In addition, Police Scotland has identified a need for modifications to the custody estate. These are in line with what was identified at the point of the Criminal Procedure (Legal Assistance, Detention and Appeals (Scotland) Act These costs will be phased over two years. 26. There will also be minor one-off costs for police in the production of aide memoire cards for the revised common law caution and for the production of a letter of rights for suspects. Questioning 27. The Bill provides for the possibility of police questioning after charge, following police or Crown application to a sheriff for permission. COPFS advise that post-charge questioning is likely to be a rare occurrence. Where it occurs, it will have cost implications for SPA, COPFS, SLAB and SCS. Child suspects 28. In giving effect to Carloway s recommendations on child suspects, the Bill makes provision for a number of changes to the manner in which children and young people are treated in the criminal justice system with regard to the arrest, detention, interview and being charged. For the most part these changes are part of wider changes to criminal procedure which will require operational change, but of particular relevance are Carloway s recommendations that: For the purposes of arrest, detention and questioning, a child should be defined as anyone under the age of 18 years. This means that the current provisions concerning notification 43
44 to an adult reasonably named by the person and these persons having access to a child suspect should be extended to all persons under 18 years of age; and All children should have the right of access to an adult reasonably named by the child if detained and, in any event, in advance of and during any interview, provided that access can be achieved within a reasonable time. 29. The Scottish Government anticipates that there will be an impact for the police by way of additional time spent finding, waiting for and accommodating parental or similar support and/or legal support for 16 and 17 year olds wishing it. However, Police Scotland has indicated that this can be achieved through the Whole System Approach already underway, and that no significant additional costs are anticipated. 30. The Bill s provisions on child suspects could bring new costs for local authorities, as a result of increased provision of social worker support for 16 and 17 year old suspects, in cases where this is not provided by a parent, family member or friend. Corroboration and sufficiency of evidence 31. The Bill removes the current requirement for corroboration in criminal cases. Lord Carloway commented in evidence to the Justice Committee on 29 November that he did not think that the total number of prosecutions would necessarily increase as a result of this change. 32. However, shadow reporting and shadow marking exercises carried out by Police Scotland and COPFS suggest that there are likely to be increases in the number of cases reported by the Police to COPFS, and in the number of cases prosecuted by COPFS. The potential scale of increase is as follows: Police increase in police reports to COPFS in the range 1.5%-2.2%, with a most likely estimate of 1.5%. COPFS change in summary prosecutions in the range of a 1% decrease to a 4% increase, with a best estimate of a 1% increase; and increase in solemn prosecutions in the range of 2-10% increase, with a best estimate of a 6% increase. 33. Taken together, and assuming that the effects are cumulative (i.e. an increase in police reports feeds directly into additional prosecutions, with changed marking procedures within COPFS applying on top of this impact), suggests potential increases in the number of prosecutions as per the table below. Relatively small sample sizes were used in analysis of the potential impact of removing the requirement for corroboration. This means that the confidence interval between which the impacts could lie presented as low and high estimates in the table is very large. However it is extremely unlikely that impacts at the high end of the scale would be seen
45 Table 6: potential % increase in the number of prosecutions Low estimate Best estimate High estimate Summary prosecutions Solemn prosecutions 0.5% 2.5% 6.3% 3.5% 7.6% 12.4% 34. An increase in prosecutions would have potential cost implications for SPA, COPFS, SLAB and SCS in terms of increased workload. An increase in prosecutions will also have impacts on the SPS and local authorities on the basis that additional prosecutions are likely to lead to additional convictions and additional custodial and community sentences. The number of criminal reports received by COPFS, and of summary and solemn prosecutions, vary significantly between years. In recent years there has been a significant downward trend in recorded crime, reports to COPFS and both summary and solemn court disposals (see Figures 1 and 2 below). This Financial Memorandum includes estimated costs associated with the increases indicated by the shadow marking exercises from a current baseline. However, the context for these increases is the overall scale in the reduction in criminal prosecutions over recent years. Source (Recorded Crime): Source: 45
46 Source: 35. With regard to the removal of the requirement for corroboration in relation to Children s Hearings court proceedings, the Scottish Government anticipates no significant financial implications for the Scottish Government, Scottish Children s Reporter Administration ( SCRA ), COPFS, SCS, local authorities or others. Carloway provisions in general 36. In addition to the costs identified above, there will be one-off costs for police and COPFS to provide training for the changes in the Bill relating to Lord Carloway s recommendations. Additional IT requirements for the police will be implemented as part of the wider IT police programme. 37. COPFS anticipate a short-term increase in the number of appeals during the three years following the commencement of the Bill. Measures with no or marginal costs Appeal procedures 38. The Bill makes changes to appeal procedures to encourage more timeous progression of appeals and to eliminate duplication of procedures. The intention is to avoid unnecessary delay, in accordance with the requirements of the European Convention on Human Rights. Reduced numbers of late appeals would lead to a slight saving for SLAB. Vulnerable adult suspects 39. The provisions in the Bill relating to vulnerable adult suspects will not entail additional costs to local authorities and police as Appropriate Adult Services are provided at present on a non-statutory basis. 46