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Penipuan Polis DiRaja Malaysia, Malicious Prosecution and Incompetency of Public Prosecutor: PUBLIC PROSECUTOR v CHUNG WAN LI HIGH COURT (KUCHING)

[2005] MLJU 409
Malayan Unreported Judgments
PUBLIC PROSECUTOR v CHUNG WAN LI
HIGH COURT (KUCHING)
CRIMINAL APPEAL NO 41-23-2004-11
DECIDED-DATE-1: 23 AUGUST 2005
LAU BEE LAN, J

JUDGMENT

The Public Prosecutor (PP) has appealed against the order of the learned Magistrate made on 14.9.2004 in discharging and acquitting the Respondent without calling for his defence.

The Respondent (Accused in the Court below) Chung Wan Li was charged with the following amended charge : “Bahawa kamu pada 18.11.2002 Jam lebih kurang pukul 3:00 petang bertempat di BEST MULTI COMMUNICATION, NO. 889, TABUAN JAVA SHOPPING CENTRE, 93500 KUCHING, SARAWAK didapati ada memiliki sebanyak 18 keping filem dalam bentuk VCD pelbagai tajuk yang didapati lucah dan dengan demikian kamu telah melakukan kesalahan di bawah Seksyen 5(1) Akta Penapisan Filem 2002, dan jika sabit kesalahan boleh dihukum di bawah Seksyen 5(2) 5 Akta yang sama”.

The PP has appealed upon four (4) grounds which I shall deal with accordingly.

1st Ground

In respect of the 1st Ground, it is the Prosecution”s contention that the learned Magistrate erred in law and in fact in coming to the conclusion that there is doubt on the identity of the exhibits seized (PI) based on the following grounds:

(i) no record of proof (“1st point”);

(ii) some of the Exhibits PI, the title was in Chinese character,
thus PW1, PW2 and PW3 cannot be so sure that the title in Exhibit
P2 was similar to the exhibits they seized (“2nd point”)
; and

(iii) since Encik Elias was not called to testify, it is not safe
to conclude that the 18 obscene VCD (video cakera padat) received
by PW5 was the same as that seized by PW1 and his colleagues (
“3rd point”).

In respect of the 1st point, the learned DPP submitted that the learned Magistrate has erred because he himself allowed the random testing of 18 VCDs upon the application of the Prosecuting Officer as is evident from the following evidence:

“P.O.: Pohon uji tayang secara random”

Court: Proceed

Court: The screening has been done”.

In respect of the 2nd point, the Prosecution submitted that the learned Magistrate erred because Exhibit P2, the Search List No. 000172 dated 18.11.2002 was acknowledged by the Accused himself.

In relation to the 3rd point, the Prosecution contended there was no necessity to call Encik Elias B. Mat Rabi because there is no need for corroboration and the Accused was not prejudiced in any event because Encik Elias was not a member of the raiding team.

On the other hand, in rebuttal to the 1st point, Mr. Roger Chin submitted that it was incumbent for the Prosecution to prove each and every ingredient of the charge i.e. one of which is that the 18 VCDs must be confirmed to be obscene. He argued that no explanation was proffered for the Prosecuting Officer”s application to carry out random sampling of the VCDs and neither should the learned Magistrate be faulted for conceding to their application as it is not the learned Magistrate”s duty to teach the Prosecution as to the proper procedure to adopt.

In respect of 2nd point, Mr, Roger Chin submitted that notwithstanding that Exhibit P2 was acknowledged by the Accused, the titles of the 18 VCDs were not listed rendering the identity of 18 VCDs seized from the Accused to be uncertain.

For the 3rd point, Mr. Roger Chin submitted that the failure of the Prosecution to call Enck Elias leaves the Prosecution”s evidence in a state of great doubt and further, it cannot be said that the Accused was not prejudiced because there was a serious break in the chain of evidence as there is doubt as to who handed the 18 VCDs to the Investigating Officer, Raja Husin b. Raja Ibrahim (PW5).

I am of the view that the submission of the learned DPP in respect of the 1st Ground comprising the 1st to the 3rd points is without merit. The charge preferred against the Accused under s.5(l) of the Film Censorship Act 2002 (“the Act”) requires proof of ” two (2) essential ingredients – the Accused was in exclusive possession at the material time, i.e. 3 p.m. on 18.11.2002 of the 18 obscene films in the form of VCD; and that the 18 films are of obscene material.

An examination of the evidence adduced by the Prosecution, as pointed out in the Written Submission of the Defence (Encl. 8), is tainted with uncertainty and grave doubt 20 as to the identity of the 18 VCDs because -

(i) Exhibit P2, the “Pengakuan Rampasan” form (Search
List) failed to list the titles of each and every one of the 18
VCDs allegedly seized by the Kementerian Dalam Negeri (KDN)
officers on 18.11.2002, the date the raid was conducted at Accused
“s shop; thus rendering the identity of the 18 VCDs in doubt;

(ii) PWl, Yusri bin Hajudin, one of the members of the raiding
team testified that after seizing Exhibit PI, he handed them to
PW5 whereas PW5 testified that he received Exhibit PI from Encik
Elias B. Mat Rabi (not called as witness). Hence there is a
serious contradiction as to whether the 18 VCDs which PWl handed
to PW5 were indeed the same ones that were handed by Encik Elias
to PW5 since Exhibit P2, the Search List prepared by PWl had not
contained a description of each and every title of the 18 VCDs
seized, but merely stated “MS Keping VCD Pelbagai Tajuk
“.

In addition to the above, I am of the view that there are other
factors raised by the Defence which ought to have been given
weight to also, although not mentioned in the Petition of Appeal,
namely -

(iii) Exhibit P5, the list of 18 VCDs prepared by PW5,1 agree,
lacks evidential value as it was not prepared at the place of
seizure.

(iv) It is also relevant to consider that the Prosecution”s
evidence revealed that PWl, PW2, Joseph Tiang ak Setu and PW3,
Atom ak Peter (the photographer) testified that they seized 18
VCDs from the Accused on 18.11.2002 whilst PW4, Ezian bin Sobeng,
the KDN officer who impersonated as a customer and who allegedly
purchased VCDs from the Accused, testified that the raiding team
only seized the 5 VCDs which he had brought back to the Accused
“s shop for exchange at the material time. This is evident
from PW4″s testimony during examination-in-chief at page 15
of the Record of Appeal, lines 24 to29) as -

“Masuk kedai tertuduh 2.35 petang.

Dari masuk hingga seterusnya, masuk dan ingin tukar VCD
tersebut, katakan penukaran dibuat soya memberi isyarat
kepada anggota lain untuk masuk menyerbu.

Ya, VCD lucah yang ada pada tertuduh hanyalah 5 keping pada
masa itu.

Yang tangkap tertuduh:-

Yusri Hajudin, Joseph Tiang ak Setu, Atom ak Peter, Abd.
Basir”.

And further at page 16 of the Record of Appeal, lines 15 to 20 -

“Ingin membuat penukaran, serah VCD 5 keping kepada
tertuduh. I open the plastic. I the one “who bring
these 5 VCD to the shop.

Selepas buka plastik soya tunjukkan kepada OKT, toleh ke
belakang dan tunjuk isyarat dan mereka pun masuk.

Setuju, pegawai KDN ambil 5 keping VCD tersebut.

Senarai rampasan saya tak pasti”.

From the aforesaid evidence, the Court is again left in a state of uncertainty and doubt as to whether the number of VCDs seized from the Accused were 5 or 18 in number.

Furthermore, the Court is left in a state of doubt as to whether the 5 VCDs brought to the Accused”s shop to be exchanged belonged to PW4 or the Accused in the light of the following evidence. PW4 testified that he purchased 5 VCDs from the Accused 3 days before the raid (15.11.2002).

Notwithstanding that PW4 said that he kept the 5 VCDs in a locked locker, however he admitted that he did not prepare any search list listing the titles of the said 5 VCDs purchased because the case was under investigation, neither were the titles of the 5 VCDs recorded in his ID and he candidly admitted that he did not hand them over to the Investigating Officer because the investigation was not completed and what he did with the 5 VCDs, nobody would know. To make matters worse, there is no proof of purchase in the form of any receipt.

Lastly, the issue of non-compliance of Section 36 of the Act. Section 36 of the Act states -

“36. (I) Where any seizure is made tinder this Part,
the Enforcement Officer or police officer making the
seizure shall prepare a list of every film, film-publicity
material, book, document or other thing seized and of the
place in which it is found and shall sign the list”.

The Defence had cited a dictum from Raja Azlan Shah (as His Highness then was) in the case of San Soo Ha v PP [1968] 1 MLJ 34 wherein at page 36, His Lordship opined -

“In my view, the provisions of the section are to be
strictly followed by the extent it is possible to ensure that the
incriminating articles obtained as a result of the search -were
recovered as alleged and leaves no room for doubt and to exclude
the possibility of any concoction or malpractice of any kind.

Following this passage the Defence had based on Section 36 of the Act which provides that where any seizure is made, the Enforcement Officer j making the seizure shall prepare a list of every film, submitted the importance of complying with the mandatory requirement of preparing a search list.

On this issue, with due respect to both Mr. Slew Chen Fui and Mr. Roger Chin, I find that they have not quoted the relevant passage in San Soo Ha”s case (ibid) in toto and therefore they have misconstrued what was the ratio decidendi. The issue before the learned Judge then was whether the accused was prejudiced as the search officer had failed to prepare a search list in compliance with s.64 of the CPC. Apart from the passage quoted above, the learned Judge further said -

“This section bears some resemblance to s 103 of the Indian
Criminal Procedure Code which is more exhaustive than ours.
Conviction or acquittal of an accused person invariably
depends upon the credibility of witnesses as assessed by the
trial court and never on the question whether a particular legal
procedure has been compiled with. The most that can be said about
the failure to comply with the provision relating to search list
is that it may cast doubt upon the bona fides of the parties
conducting the search and accordingly afford ground for
scrutiny;
but if after close scrutiny the court arrives at the
conclusion that the stolen articles were recovered from the
possession of the accused person, it is obviously no defence to
say that the evidence was obtained in an irregular manner. There
is nothing in the law which makes such evidence inadmissible.
(SeeBashir v Emperor; AIR 1932 All 185. Bhattacharjee v Emperor
AIR 1940 Cal 85
). In the present case the learned president
had explored the evidence and came to the conclusion that the
stolen articles were recovered from the possession of the
appellant. I am therefore unable to see how the failure to
prepare a search list by itself would entitle the appellant to an
acquittal”.

(Emphasis added)

Based on the emboldened portion taken from the passage quoted above, the principle to be gleaned is the effect of non-compliance of the provision governing a search list merely cast doubt on the bona fides of the parties conducting the search and it then becomes incumbent on the trial judge to scrutinise the evidence further whether a prima facie case has made out.

In the context of the present case, the identity of the 18 VCDs is central to proving that the Accused had possession of them and the absence of the listing of each of the titles of the 18 VCDs greatly weakens the case for the Prosecution.

2nd Ground

Under the 2nd Ground the Prosecution submitted that the learned Magistrate had erred in law and in fact when he came to his finding that the prosecution has failed to prove that all of Exhibit P1, i.e. the remaining 14 VCD (video cakera padat) seized are obscene films and disregaFded PWS”s evidence that the result of a screen test conducted on the seized items has shown that all these items are obscene films.

Under the 2nd Ground, in my view, it would be unsafe for the Court to solely rely on PW5″s evidence that he had conducted a screen test on all the 18 VCDs and that they were all obscene films because I find that Exhibit P5 which was prepared by him in respect of the 18 VCDs handed to him lacked evidential value and besides there was a material contradiction as from whom he received the 18 VCDs (discussed earlier).

Therefore, the screening of each and everyone of the 18 VCDs is necessary to determine whether they were obscene films becomes critical. Here as per the finding of the learned Magistrate not only were only 4 VCDs screened but unfortunately the titles of 10 the 4 VCDs were not even identified. Hence, there is no evidence before the Court of which of the 4 VCDs out of the 18 VCDs Exhibit P1 (A-R) were of obscene material and neither was there proof whether the remaining 14 VCDs were of obscene material or otherwise.

I agree with the Defence that the learned Magistrate should not be faulted just because he had allowed the Prosecution”s application to conduct random screening. In my opinion the permission granted by the learned Magistrate is not tantamount to a waiver of the burden empJaced on the Prosecution to prove each and every essential ingredient of the charge for purposes of establishing a prima facie case. It is the duty of the Prosecution throughout to establish a prima facie case and it is not for the learned Magistrate, as pointed out by the Defence, to tell them as to the correct procedure to be adopted.

3rd Ground

Under the 3rd Ground, the Prosecution contended that the learned Magistrate had erred in law and in fact when he considered failure to prove which one of the items seized is obscene is a fatal blow to the Prosecution”s case.

In my view this 3rd ground is intertwined with the 2nd ground above and therefore I do not propose to deal with it again.

4th Ground

Basically under the 4th Ground, the Prosecution is urging the Court to invoke s.158 of the CPC and to amend the charge to 4 VCDs instead of the current 18 VCDs. Here, I am in agreement with the Defence that this ground cannot be sustained. To amend the charge to possession of the 4 VCDs entails the Court to be satisfied that a prima facie case has been made out i.e. the Prosecution has proved beyond reasonable doubt that the Accused had in his possession the 4 VCDs and that the 4 VCDs was of obscene material. However, as I have explained earlier this is woefully lacking.

Conclusion

For all the foregoing reasons, I find there are no grounds for me to interfere with the findings of the learned Magistrate. I affirm the decision of the learned Magistrate and the appeal of the Appellant against the Accused”s acquittal and discharge without the 5 defence being called is hereby dismissed.

Syarifuddin bin Hj Abdul Rasa (DPP, Jabatan Peguam Negara), Slew Chen Fui (Awang Chua Voon Ting Ronald & Co)

LOAD-DATE: 03/17/2006

The issue which arises is this. If, without admission of liability, a defendant tenders or lodges in court a sum of money in satisfaction of the Plaintiffs claim that claim being a claim which can be calculated with mathematical certainty is it an abuse of process for the Plaintiff to continue to prosecute the action.: Grant v Roche Products (Ireland) Ltd and others THE HIGH COURT

[2005] IEHC 161, (Transcript)

Grant v Roche Products (Ireland) Ltd and others
THE HIGH COURT
[2005] IEHC 161, (Transcript)
HEARING-DATES: 27 MAY 2005
27 MAY 2005
PANEL: FINNEGAN P

FINNEGAN P:

JUDGMENTS:
FINNEGAN P:

(reading the judgment of the court)

The Plaintiff brings this action pursuant to the Civil Liability Act 1961 Part IV. He is the father of Liam Grant Junior. The Seventh Named Defendant is a Consultant Dermatologist who prescribed a drug Roaccutane to Liam Grant Junior. The First to Fifth Named Defendants are involved in the manufacture and distribution of the drug. The Sixth Named Defendant is the statutory body entrusted with the regulation of the manufacture and distribution of drugs within this jurisdiction. The Statement of Claim pleads that a side effect of the drug is depression, that Liam Grant Junior became depressed and suicidal as a result of taking the drug and on the 15 June 1997 took his own life. It is pleaded that the death was caused by the negligence, breach of duty and breach of statutory duty of the Defendants. Defences were delivered denying liability. By letter dated 13 October 2004 the solicitors for the First, Second, Third, Fourth and Fifth Named Defendants offered to the Plaintiff a sum of money sufficient they say to satisfy the claim. I am not satisfied that the sum offered is indeed sufficient so that it could be said with certainty that the Plaintiff would not recover a greater sum. However as the parties had come to court prepared to argue the issue raised on the Notice of Motion and court time had been set aside for that purpose and as in the particular circumstances of a claim under the Civil Liability Act 1961 Part IV it would be possible for the said Defendants to offer a sum more than which the Plaintiff could not be awarded it was agreed that I should proceed and determine the issue raised on this application. Further I propose treating the said Defendants offer as a tender although not made in the form prescribed by the Rules of the Superior Courts (No. 5) (Offer of Payment in Lieu of Lodgement) 2000 SI No. 328 of 2000 for the purposes of dealing with the issue before me. SI 328 of 2000 provides a qualified party with the alternative to lodging money in court of making an offer of tender. In practical terms and for present purposes therefore I propose having regard to the situation as if a lodgement had been made.

The relief sought by the First to Fifth Named Defendants on this Notice of Motion is as follows

(a) An order pursuant to the inherent jurisdiction of the Court staying the proceedings herein, or alternatively, restraining the continued prosecution of the proceedings on the grounds that, in light of the open offer made to the Plaintiff by Solicitors for the First, Second, Third, Fourth and Fifth Named Defendants by letter dated 13 October 2004, the relief sought by the Plaintiff in the proceedings has been offered to him by these Defendants and in those circumstances the continued prosecution of these proceedings would be an abuse of the process of the Court.”

If the action proceeds the costs of the same will be substantial indeed. The Plaintiff has obtained an Order for Discovery against the First to Fifth Named Defendants from the Master which is under appeal. On foot of that Order the first to fifth named Defendants will be required to discover between 4 and 5 million documents. As to the nature of the documents many will be highly technical and lengthy. The Plaintiff has appealed the Master’s Order and if he succeeds on that appeal the number of documents will be increased to some 9 million. It is estimated that the hearing will take in excess 3 months.

In an Affidavit filed on behalf of the Plaintiff on this application it is deposed as follows -

“4. In the first instance the offer letters are repeatedly stated to be made without prejudice to the issue of the Roche Defendants’ liability. My client wishes the issue of liability to be determined. My client believes that the wrongful actions of the Roche Defendants caused or contributed to the tragic death by suicide of his son, Liam. In the circumstances, I believe that my client is entitled to an adjudication of the liability issue and that he cannot be precluded from asserting his right of access to the court by reason only of the offer of a small monetary sum without any acknowledgement that the Roche Defendants were guilty of negligence in the manner claimed in these proceedings.”

A second issue raised in that Affidavit is that of special damages. The Plaintiff as special damages claims the expense incurred in investigating and gathering scientific information about Roaccutane. The amount claimed is Euro696,193. A considerable portion of this sum has already been paid – $219,000, $33,243, $10,500, Euro21,066.03, Euro13,865.54 and Euro139,595.83. There is an issue as to whether some or all these items are properly items of damages or items of costs. However this could be determined either as a preliminary issue or on taxation. It may be that some or all of the items are not recoverable under either heading of damages or costs.

THE ISSUE

The issue which arises is this. If, without admission of liability, a defendant tenders or lodges in court a sum of money in satisfaction of the Plaintiffs claim that claim being a claim which can be calculated with mathematical certainty is it an abuse of process for the Plaintiff to continue to prosecute the action.

The Nature of Payment into Court pursuant to Ord 22 r 1 of the Superior

COURTS RULES

A payment into court is simply an offer to dispose of the claim on terms: A Martin French (a firm) v Kingswood Hill Limited [1962] All ER 251. Where the Defence denies liability the payment in should be without admission of liability and the acceptance of the sum so paid implies no admission about the merits of the cause of action as there has been no adjudication and no estoppel is created. In effect acceptance of money so paid in is nothing more than a compromise.

RULES OF THE SUPERIOR COURTS

Order 22 r 1 of the Rules of the Superior Courts provides for the payment into court by a defendant of a sum of money in satisfaction of a claim or where several causes of action are joined in one action in satisfaction of one or more of the causes of action. The pleadings in this case are broadly framed in negligence, breach of duty and breach of contract. There is in effect only one cause of action the statutory cause of action created by the Civil Liability Act 1961 s 48. That section creates a statutory tort of causing death by wrongful act. Rule 1(6) requires the Notice of Payment into Court to be in one of form number four or number five in Appendix C of the Rules of the Superior Courts that is either admitting or denying liability. Rule 6 deals with the effect of a payment into court on costs. The Rule provides that if the amount paid into court exceeds the amount awarded to the Plaintiff the Plaintiff is entitled to the costs of the action up to the time when such payment into court was made and of the issues or issue, if any, upon which he shall have succeeded. In Willcox v Kettell 1937 1 All ER 222 the Rules of the Superior Courts England and Wales Ord 22 were considered. The Rules provided that the Notice of Payment into Court should state whether liability is admitted or denied. Rule 6 of that Order further provided as follows-

“The Judge shall, in exercising his discretion as to costs, take into account both the fact that money has been paid into court and the amount of such payment.”

In that case the Defendant paid £ 100 into court with a denial of liability the Plaintiffs claim being in trespass. The Plaintiff recovered £ 3 1.10 shillings. It was held that the Plaintiff should have his costs of the action up to the time of payment in and the subsequent costs of the issue of trespass and the Defendant to have his costs since payment in on the issue as to damages. In the course of his judgment Clauson J. cited with approval a passage from the Annual Practice 1937 at p 405:

“If the Defendant in an action for unliquidated damages denies liability but pays money into court, and the Plaintiff proceeds with the action, there are two distinct issues raised, namely

(a) Whether the defendant is under any liability to the plaintiff and

(b) Whether the sum paid in is sufficient to cover the liability, if any.

If the Plaintiff succeeds in recovering from the Defendant an amount which carries costs, even though it is less than the sum paid into court, he succeeds in the first of those issues, and is entitled to the whole costs of the action down to the payment in, and the subsequent costs of the issue on which he has succeeded. The above statement of the Practice was read and adopted in the judgments given in Powell v Vickers, Sons & Maxim Limited [1907] 1 KB 71″

The present position in England and Wales however is that set out in Hultquist v Universal Pattern and Precision Engineering Company Limited [1962] All ER 266. Where there is a payment in with denial of liability costs follow the event and it is very rare indeed that a plaintiff is awarded the costs of the issue of liability. Sellers LJ at page 272 said-

“The action of tort consists of wrongdoing and damage resulting therefrom and the Plaintiff must prove both to obtain a judgment. On the face of it there can be no complaint and no ground for an order for costs on the issue of liability because the plaintiff is being called on to prove a case to establish his right to damages and has failed to get more than the amount in court. A payment into court is an offer to dispose of the action and if accepted prevents all further costs. A plaintiff who continues an action after a payment in takes a risk and cannot normally complain if he has to pay all the costs which his acceptance of an award would have avoided.”

Thus even if two issues arise in an action, that is liability and quantum, and the Defendant lodges money in court without an admission of liability, if the Plaintiff succeeds on liability but fails to achieve an award in excess of the sum lodged in court in the ordinary case the Plaintiff will not be awarded the costs of the liability issue after the date of lodgement. That is the position within this jurisdiction.

The Issues on an Action pursuant to the Civil Liability Act 1961 Part IV

Section 48 of the Act provides as follows -

“(1) Where the death of a person is caused by the wrongful act of another such as would have entitled the party injured but for his death to maintain an action and recover damages in respect thereof the person who would have been so liable shall be liable to an action for damages for the benefit of the dependants of the deceased.”

“Wrongful act” is defined in section 47 of the Act -

“Wrongful act” includes a crime.

“Wrong” is defined in section 2 of the Act-

“Wrong” means a tort, breach of contract or breach of trust whether the act is committed by the person to whom the wrong is attributed or by one for whose acts he is responsible, and whether or not the act is also a crime and whether or not the wrong is intentional.

The definition of “wrongful act” and “wrong” read together give the comprehensive meaning of wrongful act. In an action under Part IV two issues arise:-

1. Did the Defendant commit a wrongful act.

2. Assessment of damages.

An unusual feature of an action under Part IV, having regard to the maximum sum which can be awarded for general damages fixed by statute, is that the maximum sum which can be recovered for damages can be ascertained from the pleadings with mathematical certainty. The pleadings will identify the special damages. Section 49(3) of the Civil Liability Act 1961 provides that it is sufficient for a defendant in paying money into court to pay in one sum as damages for all the dependants of the deceased without apportioning the sum between them: accordingly Order 22 Rule 1(5) does not apply.

REMEDIES AT LAW

The principle of the ubi jus ibi remedium is accepted by the courts of this jurisdiction. The appropriate remedy will vary with the cause of action and the circumstances of the same. The most common remedy is damages. Damages are the pecuniary compensation obtainable by success in an action for a wrong. The object of an award of damages is to give the Plaintiff compensation for damage, loss or injury which he has suffered. The heads of damages are divisible into two main groups; pecuniary and non pecuniary loss. However an award of damages is not the only object of a claim. Thus in Willcox v Kettell above two issues arose – vindication of the Plaintiffs claim that the Defendant had trespassed on his property and the award of damages. Where there has been injuria but no damage the courts have traditionally awarded nominal damages. In the Mediana [1900] AC 113 at 116 Lord Halsbury LC said -

“Nominal damages is a technical phrase which means that you have negatived anything like real damage but that you were affirming by your nominal damages that there is an infraction of a legal right which though it gives you no right to any real damages at all yet gives you a right to the verdict or judgment because your legal right has been infringed.”

Nominal damages can be awarded in cases of breach of contract: Marzetti v Williams (1830) lB & AD. They can be awarded in torts actionable per se:

Constantine v Imperial London Hotels [1944] KB 693 which concerned refusal by a hotel to receive a guest. Thus the Courts can vindicate a right by an award of nominal damages the main object of the Court’s judgment being the vindication of the right and the award of nominal damages being no more than “a mere peg on which to hang costs”: Maule J in Beaumont v Greathead (1846) 2 CB 494 at 499.

ABUSE OF PROCESS

The Court has an inherent power to strike out or stay proceedings which are an abuse of process. It is a power which the Court should be slow to exercise: Sun Fat Chan v Osseous Limited 1992 1 IR 425. The reported cases in this jurisdiction tend to turn on whether the Plaintiff could succeed: that is not the issue of abuse of process raised here. An abuse of the process can also arise where the process of the Court is used, not in good faith or for proper purposes, but as a means of vexation or oppression or for ulterior purposes. In Dorene Limited & Anor v Suedes (Ireland) Limited 1982 ILRM 126 Costello J. recognised the existence of an action for damages at common law for the institution or maintenance of a civil action -

1 Without reasonable or probable cause.

2 For some improper or wrongful motive including the use of the legal process for some other than its legally appointed and appropriate purpose and

3 The Defendant thereby sustains damage or damage is presumed.

To cause a man to be put to expense is damage of which the law will take notice:

Saville v Roberts 1 Ld Ray 374. At page 130 Costello J. dealt with reasonable or probable cause: the test is an objective one and it is for the Court on that basis to determine whether there is reasonable cause for maintaining the action. The Court found that the motive in maintaining the action notwithstanding legal advice that it could not succeed was to exert pressure on the Defendant by maintaining in place a lis pendens and to use this to assist the Plaintiffs in their bargaining position in dealing with the Defendant.

See also Parton v Hill (1864) 10 LT 414, Sean Quinn Group Ltd., v An Bord Pleanala & Ors 2001 2 ILRM 94. In Goldsmith v Sperrings Limited [1977] 2 All ER 566, [1977] 1 WLR 478 Scarmen LJ dealing with an action for this tort said-

“In the instant proceedings the Defendants have to show that the Plaintiff has an ulterior motive, seeks a collateral advantage for himself beyond what the law offers, is reaching out “to effect an object not within the scope of the process”.

The American Second Statement of the Law of Tort (1977) para 682 states the following principle under the heading “Abuse of Process”-

“One who uses a legal process, whether criminal or civil, against another primarily to accomplish a purpose for which it is not designed, is subject to liability to the other for harm caused by the abuse of process.”

Thus abuse of process in this sense gives rise to a cause of action in the Defendant: however I am satisfied that it should equally give rise to an entitlement to have the proceedings maintained in abuse of process struck out or stayed.

CONCLUSION

There are two objects of the present action -

1 To establish that the Defendant committed a wrongful act and

2 To recover damages.

The Plaintiff maintains that his concern is to establish that the death of his son was caused by the wrongful acts of the Defendants. In these circumstances he is not seeking “to effect an object not within the scope of the process”. If the Plaintiffs motive was to excite adverse publicity damaging to the Defendants or to punish the Defendants for their wrongful act by causing them to incur extravagant costs (as will certainly be the case here) a case for abuse of process could be made out. As the determination of liability is one of the objects of the proceedings and as there is no admission of liability the Plaintiff is not acting in abuse of process. The right to litigate to achieve the appropriate remedy is an unenumerated right under art 40.3.1 of the Constitution: Tuohy v Courtney & Ors [1994] 3 IR 1. It may well be the case that the Defendants on making a tender or lodgement such that there is no possibility of the Plaintiff beating the same that in that event the Plaintiff will be unable to satisfy any award of costs against him. This is not a factor to be taken into account. Mere poverty is never a bar to bringing an action: Tormey & Ors v ESRI [1986] IR 615. While the consequences for the Defendants of the Plaintiff determining to proceed will be significant in terms of costs the Constitutional right of the Plaintiff takes precedence. See Crindle Investments Limited & Ors v Wymes & Ors [1998] 4 IR 567 at 595. There is no question, I am satisfied, of the Court carrying out a cost benefit analysis. While in the particular circumstances of the case in AB & Ors v Wyeth Unreported [1996] EWCA Civ 1202, part of group litigation, the Court had regard to the very modest measure of damages, the fact that the Plaintiff was impecunious and the enormous costs which would be incurred by the Defendant in striking out a claim no such general principle was established. At page 10 of the judgment Stuart Smyth LJ said-

“Mr Buchan sought to rely on an analogy with the case of a multi millionaire who wished to sue Wyeth. His damages might be only £ 20,000 but he might be prepared to pay the several millions required to bring the case to trial and face the risk of paying the Defendant’s costs if he was unsuccessful. Even for a very rich man this would be economic madness, but I agree that the Court would probably not strike out his action.”

Our system of procedure penalises in costs a plaintiff who fails to accept a sufficient sum paid into court or tendered and this is the only penalty which our procedures provide.

Having regard to the foregoing should the Defendants tender or pay into court a sum equal to or greater than the maximum award which the Plaintiff could achieve but without admission of liability the Court would have no jurisdiction to stay or strike out the Plaintiffs claim. I refuse the First to Fifth Named Defendants the relief which they seek.

DISPOSITION:
Judgment accordingly.

False imprisonment – Felony – Wrongful detention by private prosecutor – Subsequent formal arrest on suspicion by police constables – Reasonable ground for – Nominal damages Malicious prosecution – Charge of larceny – Absence of reasonable and probable cause – lndirect motive – Evidence of malice – Depositions of witnesses – Fresh caption daily – lndictable Offences Act 1848 (11 and 12 Vict c 42), s 17, sched form M.: Meering v Grahame-White Aviation Company Ltd COURT OF APPEAL

[1918-1919] All ER Rep Ext 1490; [1918-19] All ER Rep Ext 1490

Meering v Grahame-White Aviation Company Ltd
COURT OF APPEAL
[1918-1919] All ER Rep Ext 1490; [1918-19] All ER Rep Ext 1490
HEARING-DATES: 18, 22, 23, 24, 25, 26, 28, 29 JULY 1919
29 JULY 1919
CATCHWORDS:
False imprisonment – Felony – Wrongful detention by private prosecutor – Subsequent formal arrest on suspicion by police constables – Reasonable ground for – Nominal damages Malicious prosecution – Charge of larceny – Absence of reasonable and probable cause – lndirect motive – Evidence of malice – Depositions of witnesses – Fresh caption daily – lndictable Offences Act 1848 (11 and 12 Vict c 42), s 17, sched form M.

HEADNOTE:
A private prosecutor not having the privilege that a police constable possesses of imprisoning a person on mere suspicion that a felony has been committed, false imprisonment results if the person is detained by the private prosecutor. Arrest, however, by a police constable which follows the placing of the case in his hands to do his duty is not an arrest by a private prosecutor, but is an arrest by the police constable.

The fact that a person is not actually aware that he is being imprisoned does not amount to evidence that he is not imprisoned, it being possible for a person to be imprisoned in law without his being conscious of the fact and appreciating the position in which he is placed, laying hands upon the person of the party imprisoned not being essential.

The definition of “Imprisonment” in “Termes de la Ley” is an adequate statement of what is meant by that expression.

Bird v Jones (1845, 7 QB 742) and Warner v Riddiford (1858) 4 CBNS 180, approved.

Absence of reasonable and probable cause for instituting a prosecution against a person affords evidence from which it may be inferred that there was a want of honest belief on the part of the prosecutor in the guilt of the person accused. But absence of reasonable and probable cause alone will not suffice. There must be evidence of some further indirect motive.

The depositions of witnesses taken in pursuance of s 17 of the Indictable Offences Act 1848 in the form set forth in the schedule to that Act should appear in chronological order, a record of the depositions being kept day by day with a fresh caption at the beginning of each day’s proceedings showing what witnesses have been examined on that day, and what part of their evidence has been given on that day.

Observations of Duke, LJ, as to the function of a judge at Nisi Prius.

Observations of Atkin, LJ, concerning the burden cast upon judges in trying civil actions in the High Court of Justice in making the only official record of the whole of the evidence which is adduced before them by taking a note thereof in long hand.

Order of Bray, J, varied.

Appeal from the King’s Bench Division

Application by the defendants for judgment or a new trial on appeal from the verdict and judgment at the trial before Bray, J, and a special jury sitting in Middlesex.

The facts of the case and the arguments of counsel sufficiently appear from the following judgments.

NOTES:
Referred: Tims v John Lewis & Co, [1951] 2 KB 459. Applied: Abbott v Refuge Assce Co Ltd, [1961] 3 All ER 1074.

See Halsbury’s Laws of England, 3rd ed, vol 25, p 362.

CASES-REF-TO:
Cases referred to:

Bird v Jones (1845) 7 QB 742.

Warner v Riddiford (1858) 4 CBNS 180.

COUNSEL:
Sir Edward Marshall Hall, KC, Rigby Swift, KC, and Ellis Hill for the appellants.; Holman Gregory, KC, and S H Lamb for the respondent.

Solicitors for the appellants, Groebel and Co.; Solicitors for the respondent, Bolton, Jobson, and Yate-Lee.

EA SCRATCHLEY, BARRISTER-AT-LAW

PANEL: WARRINGTON, DUKE, ATKIN, LJJ

JUDGMENTBY-1: WARRINGTON LJ:

JUDGMENT-1:
WARRINGTON LJ:

This is an appeal by the defendants from a judgment delivered by Bray, J, after trial before himself with a special jury in an action for false imprisonment and malicious prosecution. The jury found, speaking, for the moment, quite generally, in the plaintiff’s favour, both on the issue of false imprisonment and on the issues raised in the action for malicious prosecution, and awarded the plaintiff £ 250 damages in respect of false imprisonment, £ 1250 for malicious prosecution, and an additional £ 200 for costs incurred by the plaintiff’s father in defending the plaintiff against the charge of larceny which had been preferred against him, and which was the subject of the alleged malicious prosecution.

The defendants appeal both in respect of the findings of the jury against them on the issue of false imprisonment and on the findings of the jury and judgment of the learned judge on the issues raised by the action for malicious prosecution. And they originally appealed against the award of the £ 200 in respect of the father’s costs of defending the plaintiff. But that particular objection has been withdrawn. Therefore if we are in the plaintiff’s favour on the question of malicious prosecution, the damages will stand as they were found by the jury–namely, £ 1250 with the addition of £ 200 for the costs.

I propose to state generally, without going into the details of the evidence, the facts of this case, and then to take in detail the questions asked of the jury and their answers, and see whether there was evidence on which the jury could properly come to the conclusion that they did. It will then be necessary to see, having found those facts, whether the learned judge in the court below was right in finding, as he had to find, that there was an absence of reasonable and probable cause.

The plaintiff is an infant, and at the date of the occurrences in question he was between 18 and 19 years old. He was employed at the Grahame-White aviation works, the aerodrome, at Hendon. His father was a merchant, carrying on business in the City, and having a residence at Finchley, not very far from the Hendon aerodrome. The boy had had £ 100 premium paid for him by his father to the defendant company; he had obtained a pilot’s certificate; and he had also, I gather, acquired a considerable amount of experience as a mechanic in the company’s works, so much so that at the time of the occurrences in question he was designing an aeroplane of his own. Whether it was a good or a bad design is of no consequence. But he was engaged in designing an aeroplane of his own. For that purpose he,

of course, required a certain amount of materials and tools of such a nature as were possessed by the defendant company. He applied to one of the officials of the defendant company, a gentleman of the name of Liddle, as to the possibility of obtaining certain materials and tools from the defendant company, and he was told there was a difficulty about it, but that he might apply to Martin, who was the chief storekeeper of the defendant company, and it was possible that he might be able to obtain at any rate some of the things he wanted.

The plaintiff’s home was with his father at Finchley. But inasmuch as he, being a pilot and instructor in the aviation school at Hendon, sometimes found it necessary to be up quite early in the morning, be occupied a bedroom in a cottage called Rose Cottage, occupied by a man named Lamb, the cottage being just outside the ground of the aerodrome. So matters were with regard to the plaintiff.

There had been for some considerable time extensive thefts of material and other things from the defendant company, and those representing the defendant company were much exercised about the same, and were clearly very anxious to stop it. On 26 January 1918 certain verbal statements were made by two pilots in the employ of the defendant company, a man named Russell and a man named Somersfield, to one or more of the amateur police who were employed at the works, and who may be conveniently referred to as the works’ police. This was reported to the managing director, and he desired to have their statements put in writing. They were put into writing. They consist of the two statements dated 28 January which have been so frequently referred to in the course of the argument before us.

The effect of those two statements-I do not propose to read them at length-seems to me to be that a certain keg of varnish had been traced to the possession of the plaintiff, that it had been first placed in one of the hangars on the aerodrome ground; that it had been removed by the plaintiff from that hangar to another; and that it had afterwards been moved from the aerodrome ground altogether to Rose Cottage, and the persons who made the statements had heard that it had been or was about to be taken from Rose Cottage elsewhere.

With that particular incident connected with the varnish there was associated in those statements the name of the plaintiff, the name of Martin, the storekeeper, and Mr Brackenridge, who was the head of the school, as I understand, or, at any rate, a very important person in the aviation school, and who it was said knew at all events all about the original removal of the varnish to the hangar, although it was said that he had taken no notice of the incident.

The other matter which these two statements suggested was a supposed intimacy between Martin and the plaintiff. It was said that they were in association; that the plaintiff had frequently taken Martin up for flights in his aeroplane, and the suggestion obviously was that Martin and the plaintiff were much too friendly with each other.

Having received those written statements, which, by the way, are addressed to Mr Grahame-White, the managing director of the company, Mr Grahame-White, after consultation with the authorised police officers-not merely with his own works’ police, but the authorised officers of the Metropolitan Police-decided on applying to the magistrate for a search warrant. Application was made to the magistrate on an information which was sworn by Hutchins, who was secretary of the company. That information, which is dated 30 January 1918, was in these terms: “During the past three months, November, December, and January, a considerable

quantity of aeroplane material-comprising sheet steel, brass bolts and sockets, wood and fabric, also varnish and petrol-have been stolen from the Grahame-White Aviation Company’s works. From information I have received in statement form and supplied to me by the poIice”-by the police there he means his own works’ police-”I have every reason to believe, and do believe, that considerable quantities of the said stolen property have been taken to the address of one of the firm’s assistant storekeepers, Charles Lamb, Rose Cottage, Colindeep Lane, Hendon. I respectfully ask that a search warrant be issued for the purpose of searching the said house.”

At that time, so far as the facts of this case are concerned, the only thing that there was reason to believe had been taken to Rose Cottage was the keg of varnish. That was the thing as to which the defendant company had the written information. However, the magistrate granted the search warrant, and, in addition to it merely being a search warrant, it authorised also the arrest of Lamb. The search warrant was placed in the hands of two detective officers of the Metropolitan Police, Askew and Burgess, and on 5 February it was executed by them in the presence of officers of the defendant company.

The result of that search was that there was found in the bedroom occupied by the plaintiff a bundle of things called turnbuckles, about a dozen of them, and there was also found in the same bedroom a bundle of what are sometimes called wire strainers and sometimes short ends. Both of them are connected with the construction of aeroplanes. There was found in the drawer of the kitchen, with which, so far as I know, the plaintiff was not at all connected, two small coils of wire. In a chest in the stable, as to which it was not shown that the plaintiff had any connection whatever, they found some more wire, and, what is most important of all, they found an inner tube with the defendant company’s name upon it, that tube belonging to the under-carriage of an aeroplane. They found also in this chest in the stable a varnish brush and a piece of sheet brass, a small piece only, apparently part of what had been a larger piece, which was stamped with the defendant company’s identification mark, and which, no doubt, had been the property of the defendant company.

Besides these articles the police found on the premises-and I understand in that part of the premises with which the plaintiff had to do-a number of tools and material connected with the manufacture of aeroplanes, but which things the defendant company or the officers of the defendant company could not identify as theirs. They also found in the bedroom occupied by plaintiff-and this is a matter of great importance-drawings and sketches of the aeroplane which he was manufacturing.

The police having made their search arrested Lamb. They then inquired at what time it was likely that the plaintiff would be back again at the cottage. He was not at the cottage at the time, nor, so far as we can see, was he upon the aerodrome ground at the time. This was about six o’clock. They ascertained the address of his father. They were told that the plaintiff himself would most likely be back at the aerodrome at about nine o’clock. They did not make any appointment with him, but it was known-and this is of some importance-to the works’ police that the two detectives, Askew and Burgess, wished to question the plaintiff, and that they expected that he would be there about nine o’clock. Hutchins and Hickie-whose name I have not mentioned before, and who was the superintendent of the works’ police-with the two detectives then went off to the house of the plaintiff’s father. What took place there I will leave for the moment, because I wish to deal with what happened to the plaintiff.

Prudence, who was a sergeant of the works’ police, had been told it was desired to interrogate the plaintiff at the defendant company’s offices, and that he was, when he came back, to inform him of the fact, and see if he could, that he should be at the defendant company’s office for that purpose. Prudence interpreted and carried out his instructions in this way. He told two of the company’s police, a man named Dorry and a man named Liddington, to convey this information to the plaintiff. Dorry and Liddington saw the plaintiff come out of the works and go across the field towards this cottage. They say they saw him signal with an electric torch and receive an answer from the cottage. They then started off one one way and one the other. Liddington went straight across the field towards that part of the hedge against which was the curtilage of the cottage. The other man went off to the left and down a lane by a footpath which led in the same direction. But the point is that two men commissioned by a third to convey a message to the plaintiff thought it necessary to do so in this extremely elaborate way.

Dorry got to the cottage and asked for the plaintiff. He saw him and told him that his presence was desired up at the works, and the plaintiff said: “All right I will get my mackintosh and I will come along.” So they started, and the plaintiff suggested that they had better go a short cut through a place in the fence separating the aerodrome from the cottage, and there was found the other constable, Liddington. They all three went up to the defendant company’s offices together. The plaintiff was taken or invited to go to the waiting-room of the offices there to wait until he was wanted. Prudence, Dorry, and Liddington were all due to go off duty at eight o’clock in the evening. It was then past eight, and, therefore, they were at liberty to go off duty. But they were told that it was desired that they should remain on duty until the Metropolitan detectives had come back. They accordingly remained on duty, and they remained in the immediate neighbourhood of the waiting-room in which the plaintiff was.

Meanwhile Prudence had communicated by telephone with the detectives and with Hickie and Hutchins who were in their company that they had the plaintiff at the works. The detectives and Hickie therefore returned to the defendant company’s works, and one of them, in giving his evidence before the police magistrate, said that he there found the plaintiff detained. The plaintiff had, however, when he was first taken to the waiting-room, asked what he was there for, what they wanted him for, and said that if they did not tell him he should go away. They then told him that what they wanted him for was to make inquiries because there had been things stolen, and he was wanted to give evidence. On that statement be stayed. Askew and Burgess with Hickie then arrived at the defendant company’s offices after the interview that they had had with the plaintiff’s father, and, therefore, for the moment I will leave what took place subsequently, and consider what was the effect of what had already taken place with reference to the plaintiff and the question of his imprisonment.

The learned judge in the court below asked the jury this question in reference to it: “Had the plaintiff been detained in the waiting-room before the detective and Hickie arrived?” Answer: “Yes.” On behalf of the defendant company it was contended before us that there was no evidence that the plaintiff had been detained in the waiting-room before the detectives and Hickic arrived. They say that he was perfectly free to go where he liked, and that he knew he was free to go where he liked, that he could have gone away if he pIeased; he did not desire to go away, and, accordingly, that he was never under any compulsion or under anything which could

amount to an imprisonment. In my opinion there was evidence on which the jury might properly come to the conclusion that from the moment that the plaintiff had come under the influence of these two men, Dorry and Liddington, he was no longer a free man.

It was said by one of them, I think it was by Dorry, at the trial, that he was very anxious that the plaintiff should come from the cottage to the works at the earliest moment, as he did not want him to be at the cottage and find out what had taken place in the execution of the search warrant. I should be inclined to draw an inference in favour of the view which the jury have expressed from the fact that when so simple a matter as sending a message down to the plaintiff that he was wanted up there was concerned, that they should have taken the trouble to employ three people, a police sergeant and two constables, to convey that message to the plaintiff. Then, again, that the message should be conveyed by the two constables in the way in which it was conveyed; that one should go round one way and one should go another; that one should approach the cottage by the lane and footpath, and that the other should approach it by the aviation grounds. I cannot resist the conclusion that they meant to intercept the plaintiff.

Then they accompanied him together across the ground and when he was in the place the sergeant communicated with the detectives, and told them that they had got him there. Having got him there, and having got him there with a view to satisfying the desire of the detectives expressed before they left for Finchley, that they should have him there to interrogate, can anybody believe that they were not keeping him there until the arrival of these detectives?

In addition to that is the fact that the other two constables Dorry and Liddington, and Sergeant Prudence as well, though really entitled to go off duty, were kept there until the arrival of the detectives. Why were they kept there? Why did they go? What had they to do if it was not intended in some way to restrict the movements of the plaintiff-I do not mean to say at some future time to arrest him, but it was intended then to keep control over his will and over his movements.

To my mind there was ample evidence justifying the conclusion to which the jury had come, agreeing in that respect with Askew’s own opinion, that the plaintiff had been detained by the officers of the company. If that had been so, then it is admitted that that act was a wrongful imprisonment, because it was an imprisonment by a private person, and a private person has not the privilege which a constable has of imprisoning a man on mere suspicion that a felony has been committed. I think therefore that that was a correct finding of the jury, and that what they found was a false imprisonment.

Then they were asked a further question: “Were the detectives when they formally arrested the plaintiff in the waiting-room acting as agents and with the authority expressed or implied of the defendants?” They did arrest the plaintiff under circumstances which I will mention directly when I come to that part of the case, because they bear more on the question of malicious prosecution than upon the question of wrongful imprisonment. One of the detectives, Burgess, did in fact arrest the plaintiff. Were they acting as agents, and with the authority, express or implied, of the defendants? The jury answered that in the affirmative, that they were. Now there, I think, the jury had no evidence on which they could properly come to that conclusion. The evidence satisfies me, first, that Mr Grahame-White, the managing director, left the question to Mr Hutchins, the question as to what should be done with reference to the prosecution, and may be said almost to have washed his hands of it as soon as he directed the application

for the search warrant, and that Hutchins and Hickie, the works’ superintendent of police, and the other two officers of the company, were quite alive to the fact that, so far as the arrest was concerned at all events, they must throw the responsibility upon the constables of the Metropolitan Police.

I think that that evidence satisfies me that the officers of the defendant company did not give the plaintiff in charge, but that in that matter the Metropolitan Police acted on their own responsibility, and by virtue of the powers which were conferred upon them as police constables. That being so, the arrest of the plaintiff by them was not wrongful, because I think that they had at the time they arrested him sufficient reasonable ground for suspecting that a felony had been committed, and that the plaintiff had been involved in the commission of that felony. I think, therefore, that the arrest by the Metropolitan Police was not wrongful, was made on their own responsibility, and not as agents of the defendant company.

That being so, but for what Mr Gregory has said on the plaintiff’s behalf, a very difficult question would be involved, because the jury have made no distinction between the damages incurred by the false imprisonment, which only lasted something under an hour, and the subsequent formal arrest and its consequences. But Mr Gregory, on the plaintiff’s behalf, has agreed that, there being no wrongful imprisonment by the arrest on the part of the police constables, the only wrongful imprisonment being that by the officers of the company for a short time in the waiting-room, we may reduce the damages awarded by the jury to a nominal sum. That accordingly I think ought to be done. That will dispose of the question of wrongful imprisonment.

I come now to the malicious prosecution. I left off in the narrative where the detectives and Hutchins and Hickie had gone up to the house of the plaintiff’s father. They did not find the plaintiff there, but they did find the plaintiff’s father. Either they mentioned or the plaintiff’s father mentioned, when the object of their visit was explained to him-I do not know that it matters which-the fact that he had through his son bought and paid for the keg of varnish, and he said: “I have at my office the receipt which my boy procured and gave me for that and other things which had been bought and paid for by him.” He also said that the boy had bought other things from the defendant company, and he, the father, had paid for them by his own cheque in favour of the defendant company, and that at his office he had that paid cheque, showing therefore that the money had been received by the defendant company, and be said at the police-station in the morning, where he understood the plaintiff would be charged, that he would bring and produce that cheque and that receipt.

The detectives therefore knew at that time that so far as the keg of varnish was concerned there was no concealment about it. The plaintiff’s father said: “Yes, I have got it, and I bought it through my son and I paid for it,” and they knew also that with regard to certain other articles that the plaintiff’s father had provided his son with the money to pay for them, and that that money had been paid and received by the defendant company. They interrogated the plaintiff. They asked him first about the turnbuckles. They cautioned him, and the explanation he gave was: “Yes, those turnbuckles were given to me by Martin, they were only samples, and they have been in his office for some time, and he said they were no use and he gave them to me.”

Then he was asked about what are called the short ends. He said: “I made them.” They asked him where he got the wire, and he shrugged

his shoulders, and appeared not to be able at the moment to say where he got the wire. They are a trifling matter, and when they come to be examined now they appear as if they were of different gauges of wire, and therefore might have been made up of odd bits of wire. There is only about a foot of wire in each of them, not much if any more than that.

Then he was asked about the inner tube. Lamb had given two different accounts. Lamb had said in the first instance, when he was shown that, at the time that the search warrant was being executed: “Yes, Teddy White brought that from the Kingsbury Aerodrome.” But when the identification mark of the defendant company was pointed out to him he said that Teddy White had brought something else, a motor bicycle tyre he thought, and that that was brought there by the plaintiff.

When the plaintiff was asked about it he said, “I cannot account for that,” and the answer was “Well,” and nothing more; he did not account for it at the time. Upon him after his arrest was found a receipt for £ 11 14s ld, being the sum which he had paid by his father’s cheque, a receipt signed by Martin, and amongst the articles included in that receipt was some sheet brass. He was asked about the sheet brass, and he said. “That sheet brass I have been working on in the workshop.”

The police arrested him and he was taken to the station. I find I have made one mistake, but not of much importance. I think the inner tube was shown to him and he was asked a question about that at the police station and not at the defendant company’s office. It does not very much matter. The plaintiff was taken to the police station, and there he was charged with Lamb, who had been already arrested, with stealing and receiving 12 turnbuckles, 62 wire strainers, an aeroplane inner tube, a varnish brush, a quantity of steel wire and a piece of sheet brass together valued at £ 3, the property of the defendant company. They mentioned on the charge sheet the things which had been found upon his person and the things which had been found elsewhere which in this case means Rose Cottage.

Among the things found on his person was not mentioned the receipt for £ 11 14s 1d and among the things found elsewhere were not mentioned the sketches and drawings relating to the aeroplane. The police were entirely unable to give any satisfactory account of why those particular things which were of considerable importance were left out from the enumeration of the articles. The plaintiff was locked up for that night, and he was brought before the Occasional Court, as it was called, that is, before a single magistrate, the next morning at the police station, the prosecution asking for a remand and proving the case, or intending to prove the case sufficiently to justify a remand.

To the police station there came down the plaintiff’s father armed with the second of the two receipts, including the keg of varnish, the cheque for £ 11 14s 1d, the money mentioned in the first receipt, and be came accompanied by his solicitor. There was a conflict in the evidence as to whether the two documents, the second receipt and the paid cheque for £ 11 14s 1d, were produced to the detectives before or after the plaintiff had been brought before the magistrate. The jury have in that respect accepted the evidence given on behalf of the plaintiff, and I see no reason for differing from their finding in that respect. The paid cheque and the receipt were therefore on that footing shown to the detectives before the opening of the case before the magistrate.

What did they tell them? They told them that there had been that which appeared on the face of it to be, so far as young Meering was concerned,

a perfectly bona fide case of purchase and sale. It is admitted that Martin had limited authority to sell for cash the goods of the defendant company. Therefore so far as the plaintiff was concerned unless it was shown, as it was not shown, that he had knowledge of the limitation placed upon that authority, he was perfectly entitled to deal with Martin as if he was dealing with an authorised person, and there was no imputation on his honesty in purchasing the things which he bought from the defendant company and paying for them.

On the face of it the police also knew that the plaintiff’s father produced that which appeared to be a valid receipt at that moment for other articles not comprised in the original one for which it appeared he paid £ 11 16s to the company which included the keg of varnish. Not one of those documents was disclosed by the police to the magistrate on that occasion. The solicitor who appeared for the plaintiff did make some reference to them on the question of bail which was applied for, opposed on behalf of the defendant company and refused by the magistrate. It is found by the jury and I believe that is the true view, that the police did not disclose to the magistrate those pieces of evidence which appear strongly to support the plaintiff’s case that he had not stolen the goods from the defendant company but that such goods as he had of theirs had been bought and paid for by him.

The plaintiff, still a prisoner, was remanded. He was brought up the next day on 7 February. A further remand was asked for. He was then let out on bail, remanded till the 14th, the prosecution stating that they desired to make further inquiries. On the 14th some further evidence was taken. Hickie had been examined on the 6th, and in the course of his evidence on the 6th, when he was identifying the various goods sold, he had mentioned that 15lb of steel wire had been borrowed from a man named Hartnett, a foreman in the employ of the defendant company, therefore himself suggesting an explanation of the possession of the wire out of which the short ends had been made.

Further evidence was given on the 14th. A further remand was made till the 21st, and another remand to the 28th, and on the 28th a further charge was preferred against the plaintiff. That leads me to what the fresh charge was. It seems almost incredible, but the second charge was in respect of the things which were comprised in the second receipt. It came about in this way: Martin was lost sight of by the defendant company from the night of 5 February. He was then apprehended and charged with embezzling a sum of £ 4 which be had received from a man named Sage for the sale of a certain wood belonging to the defendant company. Being then charged he made a statement, first by word of mouth, and then in writing, as to the second of the two receipts which he had given to the plaintiff. I need not read the written statement through, it has been read many times. But the effect of it was that he had let the plaintiff have the things mentioned in the receipt-which I take to mean quite plainly acting on behalf of the defendant company-he had purported at all events to sell these things to the plaintiff, that the plaintiff had not paid him, that be had, on the contrary, spent the money which his father had given him to pay for them on another matter, but that to save him from blame on his father’s part he had given him this receipt on the promise that he, the plaintiff, would bring him the money at a future time, and that he had never brought it.

The statement was made by Martin, a man charged with embezzlement, and obviously with a view of averting a charge of embezzlement founded on this receipt, which he had given to the plaintiff, but the defendant

company chose to act upon it, and they charged the plaintiff with stealing the things mentioned in that receipt. They seem to have asked him no questions. They seem to have assumed against him that the statement of Martin was true, and not only that, but that it was a statement that the plaintiff had received these goods knowing them to have been stolen.

They charged him with that on 28 February. He was remanded again until 2 March, and on 2 March he was finally committed for trial. Before quarter sessions he accounted for everyone of these things with the stealing of which he was charged, and in particular with the things with which he was charged on the second occasion. He showed that he had paid for them at different times, and, in respect of 30s, that he had paid for them by certain goods which he had handed over to Martin instead of the actual cash, but he proved that he had paid for them.

With regard to the first receipt and the paid cheques, there was no question he had paid for them, and he not only proved this, but, after considerable difficulty, they had compelled the defendant company to produce requisition forms on which there had been entered some of the goods with the stealing of which the plaintiff had been charged.

On that the jury were asked a series of questions. With regard to the explanations which had been given on 5 February, they were asked: “Do you accept in substance the account given by the plaintiff of the explanations he gave on 5 February or the account given by the detectives and (or) Hickie”? They answered: “We accept in substance the account given by the plaintiff.” With regard to that there can be no criticism on the verdict of the jury. It is not a question of whether there was evidence on which they could come to that or not. They had seen the witnesses, and all they had to do was to say which in their opinion was telling the truth. They said that the plaintiff was telling the truth. They were asked: “Were they explanations such as might reasonably be true?” and they said that they could be. Then: “Were they such as should have been accepted by the detectives and Hickie for the time (1) as satisfactory; (2) as likely to be true,” and they said in their opinion they should have been accepted as satisfactory for the time and as likely to be true.

They then answered the question which I have already alluded to-namely, as the account given by the plaintiff’s father and the detectives respectively of their interview on the evening of the 5th, and they said that they accepted the account given by the plaintiff’s father, and they also found in favour of the plaintiff on the question as to whether the receipt and the cheque were produced before the proceedings were commenced before the magistrate.

For the purpose of establishing his case of malicious prosecution the plaintiff had to prove two things–material I mean to the present case. He had to prove that the prosecution had been instituted by the defendants with malice. That was entirely a question for the jury. He had to prove that the prosecution had been started and carried on without reasonable and probable cause. That was a question partly for the jury and partly for the for the learned judge, for the jury so far as there were any facts in dispute, and for the learned judge whether, when those facts were found, they constituted in law an absence of reasonable and probable cause. Now, with reference to malice. The jury are, in my opinion-I think this is now quite settled by authority-entitled to take into account circumstances on which the judge may properly arrive at the conclusion that there is in law an absence of reasonable and probable cause.

If on those facts the jury came to the conclusion that the prosecutors

did not honestly believe in the charge they might further find that the prosecutors were actuated by some indirect motive in pressing the prosecution, and were therefore actuated by malice. That seems to me is exactly what the jury have done in the present case. We have gone carefully through the evidence. The jury had the evidence put carefully before them by counsel, and they certainly had the defendant company’s evidence put before them by the learned judge in the court below as fully as is necessary in the summing up, and there has been nothing in the summing up which can be pointed to as misdirection in point of law.

On that the jury have come to the conclusion that the prosecutors did not honestly believe in the plaintiff’s guilt, and that they were actuated by an indirect motive. I am not going through any of the details of the evidence. We have had it read to us, and we have paid the best attention we could to it. The conclusion at which I have arrived is that there was ample evidence before the jury to justify them in the finding that the prosecutors did not honestly believe in the charge, and that they were actuated by an indirect motive, the indirect motive in this case probably being that of the works’ police to put a stop to the pilfering which had been going on. Whatever it was, it is not for us to say what it was. I think therefore that there was ample evidence to justify the jury in coming to that conclusion. If there was then I think that does sufficiently establish the suggestion of malice which it was incumbent upon the plaintiff to prove, and there can be no doubt, I think, that under such circumstances the learned judge in the court below was justified in coming to the conclusion that there was an absence of reasonable and probable cause.

The result is that I think that the verdict and the judgment following the verdict cannot be disturbed except as regards the false imprisonment. With reference to that the action must fail, and I suppose the costs of the action will be affected by that. I will defer what I have to say as to the costs of the appeal till my learned brethren have given their judgments on the appeal. But in my opinion, except so far as false imprisonment is concerned, the appeal fails altogether and must be dismissed.

Before I part with it I want to say a word about the way in which the depositions in the magistrate’s court at Hendon were taken and preserved. We had the greatest possible difficulty in this case in ascertaining on what day particular evidence was given, what part of a witness’s evidence was given on one day and what part was given on another. The depositions run on from beginning to end without any indication upon them, except so far as can be supplied by the parties themselves on the matter, and I must say that I am shocked to find that in such a serious matter as an indictable offence a record of the depositions is not kept day by day with a fresh caption at the beginning of each day showing what witnesses have been examined on that day, and what part of their evidence has been given on that day. With that I say no more.

I think that this appeal, except in so far as false imprisonment fails, must be dismissed.

JUDGMENTBY-2: DUKE LJ:

JUDGMENT-2:
DUKE LJ:

This appeal was launched upon a motion for judgment or alternatively for a new trial. It has been argued, at any rate during the greater part of the argument, as a motion for a new trial, and I propose to deal with it in that light.

I think that it is clear upon the matter, if the form, the circumstances, and the facts are understood, that as a motion for judgment it could not possibly succeed, at any rate with regard to the main question in the case, that of the alleged malicious prosecution. So far as the motion for new trial

was concerned, in the opening of the appeal it was founded to a very considerable extent upon a general complaint of the manner in which the case had been conducted at the trial. Complaint was founded upon specific allegations in the notice of appeal, and in particular, par 4, and perhaps to some extent par 5 of the notice of appeal. Par 4 was in these terms: “That the learned judge from the earliest stage of the trial took a strong line against the defendants, and that in consequence the defendants did not obtain a fair and proper trial.”

At the early stages of the argument upon the part of the appellants out attention was called in considerable detail, and with very great skill, to the interpositions of the learned judge in the course of the examination of witnesses, and from time to time attention was directed to observations such as of necessity must be made from the bench in the course of the conduct of the trial; and it was clear that the learned judge had asked searching questions by way of cross-examination, and that the jury had concurred in a view adverse to the defendants, which was expressed in those questions.

If paragraph 4 of the notice of appeal had not been founded upon that kind of objection it would have been sufficient to say that when the case is seen in its proper proportions it is obvious that the part the learned judge took here was well within the discretion with which a learned judge is invested for the conduct of the trial of the cause with the jury. Every question which was asked was a question which might well have been asked by counsel for one or other of the parties. Many of the questions to which strong objection was taken were questions which I think very probably would have been asked by counsel for the respondent, the plaintiff in the proceedings at the trial.

But I want to add to those observations that it appeared to me, having regard to the general scope of the criticism which was levelled at the conduct of the learned judge, that there was a mistake in supposing that the function of a judge at the time was that of an umpire or referee in some contest of sport, in which it was the duty of the learned judge to abstain from word or act which could have any effect upon the result of the trial. In my opinion that is a totally erroneous view of the function of a judge at nisi prius. The learned judge is in charge of the proceedings at the trial, and his knowledge of the law, and his experience, and his observation of the conduct of the parties, are matters which for the purpose of the proper due administration of justice it is necessary that he should use in order that the jury may have before them, when they come to exercise their function, the fullest possible material to which to apply their minds. And although, when detailed passages in the course of this trial were examined, and what appeared to be a definite view was elicited from them, it seemed that there might be a foundation for the sense of grievance under which one of the parties appeared to labour by reason of the conduct of the trial, I say deliberately, after having read, I think, the whole of the evidence-certainly the whole of the material evidence, and some of it more than twice-that in my opinion there is no good ground for the complaints which were made of the conduct of this trial.

The causes of action which were alleged were two: The first was a claim of damages for false imprisonment. In the statement of claim there was alleged a false imprisonment of the plaintiff by the officers of the Metropolitan Police, acting at the instance and under the direction or at the request of the defendants, and that was the ground of claim in respect

of false imprisonment. To my mind it is very significant that there was no other ground of claim.

So far as that matter of the alleged false imprisonment is concerned, it is necessary to consider whether the facts as they appear afford any proof of the allegation that the defendants requested or directed the officers of the Metropolitan Police to arrest the plaintiff. The police have specific duties and specific powers in the matter of arrest for the purpose of enforcement of the criminal law. In this case it was clear that the prosecution had been instituted by the defendants. It was not disputed that the defendants had left it to the police to do what they considered necessary. Nothing more than that was proved, as I think, and in that state of the case, my view of the matter is that the arrest on the part of the police which follows the placing of the case in their hands to do their duty is not an arrest by a private prosecutor, and is an arrest by the police.

So that, so far as the claim for false imprisonment which is found in the statement of claim is concerned, in my opinion the action fails. But the matter of false imprisonment does not rest there, because in the course of the trial-attention was specifically directed to the dealings of the defendants’ servants with the plaintiff before the arrest by the police, and to a direct allegation that there was a wrongful detention of the plaintiff by the defendants’ servants in the defendants’ office for something like an hour before the actual arrest occurred. The matter was discussed; attention was called to the fact that no claim appeared in the statement of claim; and the learned judge in the court below definitely treated the plaintiff’s claim as including that alleged course of action, and he did so without any definite protest on the part of the defendants. And I think that we are bound to take the statement of claim here as amended by the inclusion of a claim for false imprisonment by the servants of the defendants in the defendants’ office.

A serious question arose, and has been argued with great care, upon the question of whether there was evidence to support the finding of the jury upon the specific question which was left to them with regard to the matter, the affirmative finding of the jury that there was, the jury have called it, a “detention.” But I think that it must be taken to mean that there was a false imprisonment by the defendants at that time.

Stress was laid upon a variety of facts: Upon the manifest desire, and it may be determination of some representatives of the defendants that the plaintiff should be available when he was wanted by the Metropolitan Police. I think that there is evidence of that. Upon the fact that three men went to Rose Cottage to convey a message to him, and that it was a very remarkable mode of conveying a message. Upon the fact that the defendants’ sergeant of the works’ police told the Metropolitan Police that they had got him at the office, and upon the fact that at the office, although the door was open and he was not bound down or told to consider himself in custody, or anything of that kind, there were men who could, if they had intended and had thought fit, have prevented him from departing. Upon the further fact that one of the sergeants of the Metropolitan Police-I think it was the detective sergeant Askew-had said before the magistrates, and did not withdraw it at the trial, that when he went to the defendants’ office he found the plaintiff detained.

It is a matter of very great nicety to determine whether upon those facts there is sufficient to warrant a verdict that the person complaining was imprisoned. What constitutes imprisonment has been long ago defined. It is to be found in a work of very good authority in the application of the

common law-namely, “Termes de la Ley”-in these words: “‘Imprisonment’ is no other thing, but the restraint of a man’s liberty, whether it bee in the open field, or in the stocks, or in the cage in the streets”-referring to now obsolete methods of imprisonment-”or in a man’s owne house, as well as in the common gaole; and in all the places the party so restrained is said to be a prisoner so long as he hath not his liberty freely to goe at all times to all places whither he will without baile or main-prise or otherwise.”

Can it be said upon what is affirmatively proved here that there is evidence upon which the jury could act that the plaintiff was so restrained as that he had not his liberty freely to go whither he would? To my mind there is a conclusive fact proved in the case with regard to that matter, which is, that the plaintiff himself does not show the slightest indication of a suspicion that he was restrained of his liberty to go if he had thought fit to go.

Not only is that the case with regard to the plaintiff. He says when he was arrested, and in his statement of claim in the action he defines the imprisonment of which he complains. It becomes in this case very little more than an academic matter whether he was imprisoned or not. But cases of false imprisonment and malicious prosecution are not of uncommon occurrence, and the fact of imprisonment is a fact which very often has to be ascertained, and I can only say on my own part that in my opinion there is not in this case, taking the whole of the evidence together, any proof upon which a jury was reasonably warranted in finding that the plaintiff was imprisoned by the defendants in their office.

I know that I differ from my brothers with regard to this matter, and that affects me with honest anxiety as to whether my view is right, or, as is not unlikely, is wrong. But that is the view I have formed, and, as the matter is not an unimportant matter in the administration of some branches of the law, I am bound to express my opinion, and to state the grounds on which I have arrived at it.

What remains to be discussed in the case is the claim of damages for malicious prosecution. There are two matters, as has been so abundantly demonstrated during the many days that this matter has been under consideration. First of all, was there reasonable and probable cause? Secondly, was there malice? In my opinion there was not reasonable and probable cause. I have read the judgment in which the learned judge in the court below expressed his reasons for coming to that conclusion, and I say very respectfully that I concur entirely in the arguments and the reasons which are expressed in the judgment of the learned judge.

I look at the matter in this way. Here was a lad of 19, of known parentage, good education, good character, with no sort of past reflection upon him, an active and apparently ambitious lad, known to be building an aeroplane of his own, and who could be found at any time, and whose habits and proceedings outside of this charge seem to have been beyond any sort of exception. No charge was brought against him with regard to his general conduct. He was living with his father and he was doing his duty at a very trying time in our affairs as a State. He was engaged in his employment and was working late and early, and rather distinguishing himself, for a youth of his age, in the manner in which he was doing his duty. He was engaged in a great aeroplane works, where a premium had been paid for his qualifying himself to do a public duty. Two persons alleged that they suspected that he was concerned in stealing a keg of varnish, and made some other general suggestions as to an apparent complicity of the plaintiff and a storekeeper called Martin, and a prominent official of the

defendants, Mr Brakenridge, in the pilfering and making away of stores of the defendants.

In that state of the case a search warrant was got, and the cottage where the plaintiff lodged-because apparently he lived at home with his father, but he lodged in the cottage-was searched; and then a great variety of stuff was found there which is useful stuff for a man who is constructing something mechanical, especially in the way of an aeroplane. Among that stuff were four articles upon which stress is particularly laid, and 12-odd turnbuckles, 62 strainers, short ends, as they are called, pieces of wire of various gauges which have been wrought up into useful shapes, an inner tube, such as is used in some aeroplane work, and a piece of brass sheet. Those were the specific matters, and there was also a varnish brush; and those articles of the defendant’s found there he is charged with stealing. They were identified, it is said, as having come from the defendant’s premises; and people took upon themselves to swear that the articles had not been honestly come by, people who were not in charge of them, who had no specific knowledge of them at all, who would not have known of their own knowledge whether they had been dealt with on behalf of the defendants or not. But upon, as is said, the possession of those articles the plaintiff was accused-I will say first “suspected.”

With regard to the inner tube, the plaintiff was suspected without there being possession. First of all, there is no specific proof that the article was stolen, and then there is no case of possession. With regard to the turnbuckles, the only person who knows anything of them is Martin, and they are odd turnbuckles. With regard to the wire strainers they are odd pieces of wire which anybody can see, as we saw for ourselves this morning, wires of varying gauges; and with regard to the brass sheeting, it is 2lbs of brass sheeting, and the plaintiff had been lawfully in possession of 51/2lb. of the same quality of brass sheeting, brass sheeting of the same character.

But it is said that the plaintiff had got them and that there was a prima facie case. The nature of the case I have referred to. What was there at that time, which warranted the supposition that the plaintiff had stolen the articles? It is said that he did not account for them. The jury thought that he did; and Sergeant Burgess said in his evidence at the trial, that upon being charged, the plaintiff answered that he had bought the stuff-speaking generally of everything that was in question.

It is quite true that if a stranger had been found in possession of those miscellaneous articles, there might have been a case of theft against him. The defendants knew a great deal more about the plaintiff than they would have known about any stranger. The fact was that he had not stolen the articles, and that there is no ground for suggesting that he had stolen them, and that the defendants themselves now say, and said at the trial, that they are satisfied that he had not stolen them. For various reasons they were satisfied about it, satisfied upon information which they have; and what was the information? What is said on the part of the plaintiff is that every part of the information was at their disposal at that time. And speaking broadly, looking at the matter as a matter of substance, in my judgment it is the case that what the defendants knew at the time when they admitted that the plaintiff could not be reasonably charged with stealing the goods, they either actually knew by their servants, or were in a position to know if they had made inquiries. And so far as I am able to form an estimate of the proceedings at the trial, the learned judge took that view, and not only took the view, but took it very emphatically, and with great resolution.

The knowledge about these facts was part of the knowledge which could be got from the plaintiff himself, and from his father. There was no real examination of the plaintiff himself; and, after all, these jurymen were human beings who very likely had sons of their own, and they had to consider what a reasonable person who was going to take an act which would blast the life of a young man would do when he was confronted with this possession of a miscellaneous collection of not particularly useful articles in the possession of a young fellow like the plaintiff.

The jury thought that they would ask him. They did ask his father, who admitted that they asked him, and that he told them that the plaintiff bought the goods. His father undoubtedly was asked. He said: “The boy is building an aeroplane, and a friend of his and myself are financing him in getting the necessary materials.” In the face of that state of the case, and bearing in mind that there were people in their works who could trace every commodity which went in and which passed out, the jury had to ask themselves whether it was reasonable for the defendants to make this charge; and the jury said, not with regard to niceties of law but as a matter of common sense and plain dealing between man and man, that it was not reasonable. They said that with regard to the first charge; they said that with regard to the second charge. And really, with regard to the second charge, the matter was somewhat striking, because as to the second charge, the keg of varnish was the substantial matter in it–five gallons of varnish. The defendants had known of that on 5 February. They had spoken to the plaintiff’s father about it. They had received such information that they did not think that they ought to prosecute at that time. Before 5 February, for several days they had been in some question about it. They made no inquiry of all the people who were capable of being questioned about it. Ultimately they made an inquiry of Martin, and what he said about it was, in substance, “I sold him the stuff, but he did not pay for it, and I gave him a receipt to prevent him getting into a scrape with his father.” That proves to have been untrue. But at the time Martin said that and appears to have decided this question whether there should be a second charge the defendants themselves were prosecuting Martin as a man who was embezzling moneys of theirs which he had received.

I agree with the view of the learned judge upon the question of reasonable and probable cause, and I agree with the finding of the jury. It appears to me that when you have a clear finding of the sort there is here in a case of this kind, that there was no reasonable and probable cause, the next question is for the jury, whether any reasonable man, actuated only by a desire to promote the interests of justice, could have prosecuted without reasonable and proper cause-without a real ground for proceeding: whether a reasonable man could have done it. And the jury came to the conclusion that a reasonable man could not, and that there was some other motive.

Matters which were objected to, especially, on the part of the learned judge, were those questions of the learned judge which suggested the kind of motive that is not personally discreditable to persons charged with a malicious prosecution-namely, the motive that being carried away by losses of property, they are impelled without resort to their own reason into a hasty decision to prosecute an alleged offender, not because it is supposed he will be found guilty, but for the protection of their property. The learned judge in question has directed attention to that matter. He directed the attention of the defendants’ managing director; and as I pointed out this morning, in the evidence he gave in chief Mr Grahame-White specified in

the most unqualified terms the losses to which they had been led, and the necessity of an exemplary prosecution as the motive-I think it was spoken of in answer to a question of counsel which was directed to ascertaining the only motive-but as the motive of this prosecution. There there was matter which was evidence to support the finding of the jury.

There was something else: This prosecution, at most of the stages of it, was in the hands of the superintendent of the defendant’s works police Superintendent Hickie. There were three serious things alleged against him which would have been fatal to him in this case, in my judgment, if he had been a private prosecutor. One was that he had failed to produce evidence tending to the acquittal of the prisoner, which was well within his knowledge. The second was an allegation that there were matters of fact upon which his evidence was not true; and the third was that in his “occurrence book” there were entries which appeared to have been made not at the time when material incidents were said by the occurrence book to have actually occurred, but at subsequent times and at one time, and those were serious matters. There were other matters of the disappearance of documents, and matters of that kind. But, with regard to Hickie, those were grave allegations, and the jury formed an opinion adversely to him upon those allegations.

I am satisfied, in that state of the case, that upon the main question-the question whether the prosecution was of such a nature, so unsupported by reasonable and probable cause, that the jury were driven to look for a reason for it-there were grounds to support their verdict. Upon the evident fact that where there was evidence of express ill-will, at any rate on the part of the superintendent, there were facts in the conduct of the superintendent to which the jury were bound to give their attention, and as to which, when they found an adverse verdict to him, they can only be regarded as facts which supported that verdict.

I am expressing no opinion about his conduct. I am regarding the matter merely from the point of view of the weighing of evidence. Now it seems to me in that state of the case the defendants fail upon the material matters, and that the verdict of malicious prosecution must stand.

To my mind, therefore, the true result would be to enter judgment for the defendants with regard to the false imprisonment and to maintain the findings and verdict and judgment upon the question of malicious prosecution.

JUDGMENTBY-3: ATKIN LJ:

JUDGMENT-3:
ATKIN LJ:

After the review that this case has received from my two brothers I myself should not have been disposed to have delivered a separate judgment if it had not been for the extreme importance of the matter, and also in deference to what I venture to call the admirable and forcible argument of Mr Rigby Swift, in which he presented the case for the appellants with so much force and such sustained good temper. I should therefore like to say something in reference to the points which do arise in the case.

I think that we are obliged to take it that the issue as to false imprisonment raised on the pleadings was extended by the assent of both parties to an allegation that the plaintiff had in fact been falsely imprisoned at the works of the defendants before he was formally arrested by the detective sergeant. In respect of that it is said that that, after all, cannot be true because the plaintiff himself never supposed that he was imprisoned at the time. He used language which indicated that he was intending to go away if the persons who were proposing to see him and to take his evidence did not come soon.

Therefore it is said that inasmuch as the plaintiff did not know that he was being imprisoned it is not possible that there could be evidence that he was imprisoned. I think that the case is important when that contention is to be dealt with, because it seems to me upon a review of the possibilities of what is meant by imprisonment, that it is perfectly possible for a person to be imprisoned in law without his knowing the fact and appreciating that he is imprisoned.

I do not think that it is necessary at this stage of the case and with the time at our disposal to go through the authorities dealing with the question of imprisonment. I am disposed to think that the definition of “imprisonment” read by my brother Duke from “Termes de la Ley” is an adequate and sufficient statement of what is meant by that expression. I think that one might add to that a reference to the case of Bird v Jones (1845. 7 QB 742), where Coleridge, J, indicated that to the definition of imprisonment and restraint of liberty, there has got to be added restraint within a particular space. A further discussion of the question of imprisonment and whether there can be imprisonment without in fact laying hands upon the person of the party imprisoned, is to be found in the case of Warner v Riddiford (1858, 4 CBNS 180, at p 204), in a discussion by a very learned judge Wills, J.

It appears to me that a person could be imprisoned without his knowing it. I think a person can be imprisoned while he is asleep, while he is in a state of drunkenness, while he is unconscious, and while he is a lunatic. Those are cases where it seems to me that the person might properly complain if he were imprisoned, though the imprisonment began and ceased while he was in that state. Of course, the damages might be diminished and would be affected by the question whether he was conscious of it or not.

So a man might in fact, to my mind, be imprisoned by having the key of a door turned against him so that he is imprisoned in a room in fact although be does not know that the key has been turned. It may be that he is being detained in that room by persons who are anxious to make him believe that he is not in fact being imprisoned, and at the same time his captors outside that room may be boasting to persons that he is imprisoned, and it seems to me that if we were to take this case as an instance supposing it could be proved that Prudence had said while the plaintiff was waiting: “I have got him detained there waiting for the detective to come in and take him to prison”-it appears to me that that would be evidence of imprisonment. It is quite unnecessary to go on to show that in fact the man knew that he was imprisoned.

If a man can be imprisoned by having the key turned upon him without his knowledge, so he can be imprisoned if, instead of a lock and key or bolts and bars, he is prevented from, in fact, exercising his liberty by guards and warders or policemen. They serve the same purpose. Therefore it appears to me to be a question of fact. It is true that in all cases of imprisonment so far as the law of civil liability is concerned that “stone walls do not a prison make,” in the sense that they are not the only form of imprisonment, but any restraint within defined bounds which is a restraint in fact may be an imprisonment.

Under those circumstances, it appears to me that the sole issue in this case is whether there is evidence upon which the jury could find, quite apart from the plaintiff’s knowledge of what the real fact was-that he was in fact imprisoned in the sense which I have mentioned, so that his liberty was in fact restrained; so that he was substantially in the same position

as if the key had been turned in the door of the waiting-room where he was in fact waiting.

I think that there is evidence. We have to consider the whole of the facts, because we have to remember that, after all, this was a young man who was under suspicion at that time of stealing, and in respect of whom it would appear that the defendants had been taking some steps to ascertain what the true facts were for at least a week if not more. A search warrant had been executed and his room had been searched, and there can be no question, I think, but that at the time the police-both the works’ police represented by Hickie and the detective police-were suspicious of the plaintiff, and having this suspicion they had determined to see him and to interrogate him when they found him at nine o’clock. But we know that there were communications between the police who made the search and the police at the works. What those communications are we are not told, but we know that Prudence as the result of these communications was aware that the police desired to interrogate the plaintiff; and Prudence had formed the opinion, and I think it was for the jury to infer from that communication that the police were desirous that the plaintiff should not reach the cottage and become acquainted with what was taking place in the way of search before they had interrogated him.

The evidence is that Prudence saw the plaintiff go to the cottage at an earlier time than the time when the police would be able to interrogate him. It is quite plain. He says that he made up his mind that it was undesirable that he should be at the cottage, and therefore he sent a message to bring him up to the works-I am using a neutral term-and I think that it is not insignificant, that instead of sending an ordinary messenger, he and two constables followed the plaintiff to the works, and that the two constables were made the bearers of this message, and that in fact the two constables did-I think I am using a neutral term when I say-escort him back to the works.

Then he was shown into the waiting-room, and he was kept there. By “kept” I do not mean to prejudge the question of whether he was kept there against his will. He was, however, in fact induced to remain there by a representation which was untrue, but which from the point of view of the police was quite harmless, on the footing that they were dealing with a person who was at that time a suspect.

In addition to that, the plaintiff being in that room, he was kept there an hour. While he was there a message was sent: “We have got him at the office,” and while he was there one constable at least, if not two, was kept on duty beyond his time for about an hour, and that constable was stationed just outside the main door that opened into the hall where the plaintiff was. The position was that it was unknown to the plaintiff in fact. As I gather during substantially the whole of this time the plaintiff was in the waiting-room which opened out into the hall with the constable standing at the front door and Sergeant Prudence standing in the hall outside the waiting-room, and that is the position where he was found by the detective-sergeant when he came to interrogate him. The detective-sergeant, an experienced policeman, using phrases with which he is familiar, and describing the position at the time, described him as being detained there. That is a phrase which I agree is an ambiguous phrase in ordinary parlance. But that phrase, when used by a policeman in reference to a suspect, whom he in fact arrested within a very few minutes, not very long after the time he got there, is a very extraordinarily significant one to my mind.

At any rate, it appears to me that there are no doubt two inferences that the jury might draw from these circumstances-they might come to the conclusion from all those circumstances that all that happened was that Prudence would have restrained the liberty of the plaintiff if the plaintiff had sought to exercise his liberty by proceeding to the cottage; but they might, to my mind, infer also that Prudence had made up his mind from the time that the plaintiff was in the waiting-room that he should not exercise his liberty, and that he placed the policeman there for that purpose.

Under all the circumstances of the case, it appears to me that it was open to the jury to find that the facts which I have mentioned point more strongly and with greater probability to the latter view than to the former view. And I think therefore that there was evidence upon which they could find that the plaintiff was imprisoned during the time referred to an hour or so, when he was kept in the waiting-room. But the main imprisonment that was complained of in the pleadings, and that which no doubt was that which gave rise to the substantial complaint, was the imprisonment which took the form of arrest by the detective officer, the plaintiff’s removal-conveyance the police called it-to the railway station, and locking him up in a cell on a February night and bringing him before the justices the next morning. I think that can only be brought home to the defendants by establishing that the police acted under their direction and with their authority, which comes to the same thing.

I am impressed by the fact that Hickie made representations to the plaintiff which indicated that he, Hickie, had control of the position, and that the plaintiff might go free if he made a satisfactorv explanation. But at the same time it is quite plain that the police had authority to act upon their own initiative. They were police constables informed as to the allegation that a felony was suspected. They had found property which they had been told was stolen property upon the premises, and some of it in the possession of the plaintiff. And I think that upon that there was ground upon which they could have acted on their own discretion, and have arrested the plaintiff.

The evidence seems to me on this part of the case to point with equal probability to either of the two alternatives. When it points with equal probability to either of the two alternatives, then it cannot be said that there is evidence upon which the jury can find proof of either of the alternatives. Under those circumstances it appears to me that there was not sufficient evidence upon which the jury could find the defendants responsible in respect of the main charge of imprisonment.

All that it is necessary to say further in addition to that is this: It would seem to follow as a matter of course that the damages which the jury gave upon the footing that the defendants were responsible for the whole of the imprisonment, including the actual locking up in a cell, and so on, could not stand as damages which were appropriate, and there would have had to have been a new trial to assess the damages. But Mr Holman Gregory, on behalf of the plaintiff, does not desire that, and therefore the result-and I think the proper result-would be that the damages in respect of the charge of false imprisonment must be reduced to a nominal amount, which would be properly represented by 1s.

In respect of the malicious prosecution, two matters arise: Was there evidence of the absence of reasonable and probable cause? Is there evidence of malice? I do not propose to review the evidence, which has been gone into fully by my brothers and with complete satisfaction to my own mind, but in my opinion there was abundant evidence of the absence of reasonable

and probable cause in this case. I think that the fact that the plaintiff was an ex-pupil of the establishment and the fact of his youth, and the fact of his good character, seem to have been ignored altogether. What seems to me to have been an important thing in the case is that it was proved and known to the defendants that the plaintiff was in the ordinary course a customer of theirs, and that he had goods sold to him for which he had paid. That, to my mind, was one of the illuminating facts which ought to have influenced the conduct of the defendants in every step that they took.

It is a most unfortunate matter, to my mind, that this case was left by the principal people connected with the defendants to subordinates. I can quite understand that in war time there was serious pressure upon most of the responsible people. But, after all, it must be some very serious contract that can outweigh the importance to the company of the life and liberty of a boy of 18 who was an employee of the defendants. I think that all business might have been set aside so far as was necessary to enable the managing director to give his own mind and his own attention to this subject, and to the inquiries that were made.

The next question is that as to malice. The way in which I look at that is this. The jury have found that here there was no honest belief on the part of the defendants in the truth of this charge, and, if there is evidence to support that, I think that there is an end of the case so far as malice is concerned, and to my mind there was evidence upon which that question could be left to the jury upon which the jury could so find. It is to be remembered that the person to whom the defendants eventually delegated this prosecution was Hickie, and under those circumstances they must put up with the consequences of the finding as to Hickie’s belief.

The grounds have been stated by my brother Duke very forcibly as to the reasons upon which the jury might very well infer that Hickie had no honest belief in this case. Honest belief seems to me to be the substantial thing that has always to be decided. If you find that a prosecutor has an honest belief in the truth of the case, then he has an adequate motive and a proper motive for acting, because it would be his duty, having an honest belief in the man’s guilt, with a view to furthering the ends of justice, to prosecute. But absence of good ground for bringing a prosecution affords evidence from which the jury might find that there is no honest belief, and, if so, absence of good ground or reasonable and probable cause is evidence from which the jury may infer malice.

If, on the other hand, the absence of reasonable and probable cause does not satisfy the jury that there is a want of honest belief, and if, notwithstanding the absence of reasonable and probable cause, they find that there is an honest belief, then it is very difficult indeed to establish malice. At any rate, the absence of reasonable and probable cause alone will not be sufficient, and therefore it would appear there must be express evidence of some further indirect motive actuating the prosecutor.

In the present case the jury have found an absence of honest belief, and under those circumstances I think, there being evidence to support it, the verdict and judgment must stand. I want to say one word more

about honest belief. I think that honest belief must be not merely belief by the prosecutor in the guilt of a person, but it must be a belief that the prosecutor will be able to adduce such evidence before the jury or the court as would justify the court in convicting the accused. For instance, it constantly happens-or, at any rate, it happens from time to time-that a person receives information from sources which he knows are unavailable. It is given sometimes confidentially in the sense that the witness cannot be called. It is given sometimes by witnesses who are in themselves untrustworthy of belief, or who have acquired their information in ways which for public reasons or otherwise cannot be disclosed. It seems to me that, if belief were founded solely upon evidence such as that, it could not be said in any way to justify the bringing of a prosecution. A man is not entitled to bring a prosecution, to my mind, unless he believes not merely that the person is guilty, but that he at any rate believes that there is a reasonable prospect of the prisoner being convicted.

That concludes, I think, what I have to say in respect of this matter except as to the summing up, and in respect of the summing up I would say this. As far as I know, no complaint has been made of misdirection by the learned judge in the court below on a question of law. If there is any such complaint it appears to me to be unfounded. I think that the learned judge has stated the law and the onus of proof pretty accurately in every respect. The complaints that are made are in respect of his dealing with the evidence, and in respect of one particular matter where it is suggested that he has in reading from his note not given the complete statement of the evidence given by Mr Grahame-White, where he says be prosecuted because of previous thefts and because he thought it was his duty to stop thefts.

The learned judge has omitted to mention, in stating the matter to the jury, that Mr Grahame-White qualified that shortly afterwards by saying that he himself was fully convinced at this time-namely, when the search warrant was obtained-that the plaintiff was guilty. That was a qualification, no doubt. I think it is quite plain to my mind that that arose from the fact that the learned judge was reading his note, and in a case of this kind a judge may really be excused if, in referring to a note taken in a long case, and taken perhaps 10 days or so before the actual summing up, he makes a mistake. I have said before, and members of this court have said before, and other learned judges have said before, that it is an intolerable burden that is cast upon judges in trying civil cases-especially in trying complicated and long cases of the present kind-they have to spend their time in making the only official record of the evidence. I said before in the course of the argument, and I say it again, that I believe we are almost the only civilised community in the world where in civil cases in the High Court evidence is taken upon our own system, the evidence being heard fully in court in examination and cross-examination, and there is no official shorthand record of the evidence that is taken. In a case of this kind the learned judge has got to appreciate the evidence, not merely the information that is in the possession of the prosecutor, but the evidence given on the depositions, the evidence given at the trial on the indictment, and the evidence which is being given before him, he has to bear in mind the relation of all those facts and the contentions of the parties on the manifold issues of false imprisonment, absence of reasonable and probable cause and malice. He has himself in addition to control the whole course of the trial, and at some stage or other to make up his mind as to whether there is reasonable and probable cause. At the same time his whole time

by our procedure is employed in writing down in longhand the whole of the evidence which is given by the witnesses before him.

It has always been a marvel to me that justice is done at all under those circumstances in complicated cases. No other tribunal does it. If Parliament appoints a committee or otherwise to take evidence, there is no question about a shorthand note. In most of the other divisions of this court a shorthand note is taken, and I think that it is high time that similar conveniences-which are not merely conveniences, but measures which to my mind are often necessary if justice is to be done-should be adopted.

That concludes the matter except with reference to one other thing which is a matter of criticism upon which I think something ought to be said, and that is about the depositions. The duty of justices and justices’ clerks in taking depositions has been determined by statute, and their duty is laid down in s 17 of the Indictable Offences Act 1848 (11 & 12 Vict c 42). It is thereby provided that the examination of a person charged upon an indictment shall be taken in the form set out in the schedule to that Act. The form of the deposition provides that the deposition of each witness shall have the caption which shows that it is taken “this day.” The form was this: “The examination of C D of taken on oath this day of in the year of before the undersigned, one of Her Majesty’s justices of the peace for the said county, in the presence and hearing of A B who is charged this day before me that he the said A B,” did so and so.

The statutory provision is as clear as it can be, and it is really essential for the purpose of fully appreciating in a long case what the evidence actually is that those statutory provisions should be strictly adhered to. To my mind there should be a proper caption for each day’s proceedings, and the depositions should appear in chronological order, so that you could then determine how and when the evidence was given. If a witness was recalled be should appear in his right place, and you are then able to appreciate that be has been recalled, and what evidence has been given for him to be recalled, and it can be explained how and why he is recalled.

All that is extremely important; and also it is likewise extremely important in my view that the caption should be properly indorsed. As a matter of fact at the present moment there is a tendency on the part of magistrates’ clerks to pay no attention to the caption at all until the person has been committted, though the depositions purport to show the examination of witnesses taken upon “this day,” and the person this day is charged before the justice with so and so. They in fact fill up the caption merely with the offence upon which they are proposing to commit the prisoner. The charges that are made before them in the course of the hearing disappear altogether constantly from the caption, and a better test could not be provided than this caption, for the whole of these depositions states the whole evidence as having been taken upon 2 March in the presence of Martin and Meering, when we know that a great deal of it was taken upon other days, some upon the 6th and some upon the 14th, before Martin was ever actually before the court at all.

It is, I repeat, a matter of extreme importance in these days, all the more important because the protection which is given to accused persons by the Grand Jury has entirely disappeared, and the only authority for preferring an indictment against an accused person under ordinary circumstances is the actual commitment by the magistrates. I think that in the present case there can be no doubt that the court below and we ourselves, and counsel on both sides, have been extremely embarrassed by

the highly irregular way in which these particular depositions have been prepared.

JUDGMENTBY-4: WARRINGTON LJ:

JUDGMENT-4:
WARRINGTON LJ:

The order that we propose to make is this judgment to be varied by directing that judgment be entered for the plaintiff for 1s damages for false imprisonment by the defendants’ servants. Judgment for the defendants on the false imprisonment alleged in the statement of claim. Total amount of damages to be reduced to £ 1450 1s The defendants to have the costs of the issue as to the false imprisonment alleged in the statement of claim. That would be in the court below. Then with regard to the costs of the appeal, the appellants to pay to the respondent two-thirds of the costs of the appeal.

DISPOSITION:
Order varied.

Police – Unlawful conduct – Action for damages – Compensatory damages – Malicious prosecution – Aggravated damages – Directions to be given to jury in respect of bad character – Whether jury’s award of damages one to which no jury could reasonably come: Manley v Metropolitan Police Commissioner COURT OF APPEAL (CIVIL DIVISION)

[2006] EWCA Civ 879, (Transcript: Smith Bernal Wordwave)

Manley v Metropolitan Police Commissioner
COURT OF APPEAL (CIVIL DIVISION)
[2006] EWCA Civ 879, (Transcript: Smith Bernal Wordwave)
HEARING-DATES: 28 JUNE 2006
28 JUNE 2006
CATCHWORDS:
Police – Unlawful conduct – Action for damages – Compensatory damages – Malicious prosecution – Aggravated damages – Directions to be given to jury in respect of bad character – Whether jury’s award of damages one to which no jury could reasonably come

COUNSEL:
S Murphy for the Appellant/Claimant;M Ley-Morgan for the Respondent

PANEL: WALLER, MOSES, WILSON LJJ

JUDGMENTBY-1: WALLER LJ:

JUDGMENT-1:
WALLER LJ:

INTRODUCTION

[1] The Appellant (Mr Manley) was the Claimant in proceedings against the Respondent (the Commissioner of Police for the Metropolis). By his points of claim he alleged 1. assault; 2. false imprisonment; and 3. malicious prosecution by police officers for whom the Respondent was vicariously liable. The trial was heard at the Central London County Court before His Honour Judge Crawford Lindsay QC and a jury between 4 and 15 July 2005. The jury were requested to bring in their verdicts on liability before deciding quantum, and on liability Mr Manley was to a substantial extent successful.

[2] The judge after discussion with counsel and, in a fashion which was not criticised by either Mr Shaun Murphy for the Appellant or Mr Ley-Morgan for the Respondent, directed the jury on damages. He provided guidance on basic damages by reference to a range of figures, and further directed the jury as to the approach they should take to the question whether there should be an award of aggravated damages and exemplary damages, and if so the quantum of such awards. His range so far as assault was concerned was GBP1,000-GBP2,000; so far as false imprisonment was concerned was GBP7,500-GBP12,500; and so far as malicious prosecution was concerned it was GBP4,000-GBP5,000. The jury awarded GBP1,000 for assault; GBP7,500 for false imprisonment; and GBP1,500 for malicious prosecution. They awarded no aggravated or exemplary damages.

[3] The Appellant appeals against the award of damages. Mr Murphy for the Appellant did not pursue the appeal against the basic awards for assault and false imprisonment recognising that those figures were within the range albeit the lowest figures suggested by the judge. His submission was that the award for malicious prosecution where the award was GBP2,500 below the lowest figure in the judge’s range was an award which no reasonable jury could consider sufficient, and that a failure to award aggravated or exemplary damages was a decision to which no reasonable jury could come.

THE ISSUE IN BROAD TERMS

[4] In relation to liability the jury were asked a series of questions. Their answers to those questions enabled Mr Murphy and Mr Ley-Morgan to agree before us to a substantial extent what the jury found as the facts and thus where they had accepted or rejected the evidence of one side or the other. There was no dispute that to a large extent the Appellant’s account of matters had been accepted. The jury’s findings involved a number of the police officers having behaved reprehensibly in the extreme, fabricating serious allegations on which the Appellant was originally charged. The findings involved a number of officers having told lies at a criminal trial to support those fabricated allegations and having continued to tell those lies in order to try and defeat the claim of the Appellant in the civil proceedings.

[5] The Appellant was however a man with a serious criminal record, and by the conclusion of the appeal, it became clear that an important consideration in the appeal was the extent to which that factor provided a basis on which the award for malicious prosecution should be discounted.

[6] A further point of some significance relied on by Mr Ley-Morgan so far as aggravated or exemplary damages were concerned related to the extent to which it could be said by reference to certain findings of the jury that the Appellant’s conduct contributed to the events which gave rise to the Appellant’s claims.

THE FACTS

[7] I append the questions posed to the jury and the answers given by the jury. On those findings the position is accepted by both sides to be as follows. The jury accepted, contrary to the Appellant’s version of events, that a Golf motor car was being driven at 80 mph in a residential area in the early hours of Christmas morning 1998. The jury accepted that the police thought that the Appellant was the driver but also accepted the police were wrong in that belief. The jury accepted that when the car came to a halt the occupants got out, and that the Appellant did not stay by the car. They did not accept as the Appellant had claimed that the Appellant was apprehended by PC Dakin pulling his shirt and ripping his buttons off.

[8] From this stage on however the jury effectively accepted the Appellant’s version of the events of that morning. They accepted that PC Dakin struck the Appellant on the head with his extended baton without excuse. They found that PC Dakin was lying when he asserted that his reason for so doing was because the Appellant had put his hand in his pockets and threatened to kill him by saying ‘I am going to put two fucking bullets through you’.

[9] The jury accepted that PC Dakin thereafter sprayed the Appellant in the face with CS gas because he feared that the Appellant was going to attack him, but in the light of the previous attack this was hardly a finding in favour of the police.

[10] The jury rejected as a lie PC Dakin’s assertion that the Appellant chased him round a car parked in the road, jumped on a window sill of a house and head butted a window, and his assertion that two black males arrived with the Appellant then saying ‘now I am really going to get you cos my mates are here, I live in this area. You’re dead’.

[11] It was undisputed that two other police officers arrived, PC Marshall and PC Dawson. It was not in dispute that PC Marshall hit the Appellant with his baton twice on the left thigh again without excuse. The jury rejected the police case that the Appellant was the aggressor, and going to attack PC Marshall.

[12] It was not in dispute that PC Dakin then hit the Appellant over the back with his baton while he was being held by PC Marshall and PC Dawson, but the jury rejected the officers’ evidence that the Appellant was struggling violently trying to hit PC Marshall and PC Dawson.

[13] The jury must have accepted that the Appellant was then held on the ground and hit by PC Dakin and other police officers with batons, rejecting the police evidence that no such thing happened. They must also have accepted that whilst on the ground, the Appellant was gratuitously sprayed in the face with CS gas by PC Dakin rejecting the police evidence that no such thing happened.

[14] The Appellant was put in a police van to be transported to the police station He was at first taken to hospital because of his injuries. He was then brought back to the police station. The police evidence was that the Appellant had refused to take a breath test. It was not in dispute that the Appellant did breathe into a hand held machine and that it turned red/amber. But the jury found that PC Dawson and (I emphasise) the custody sergeant, Sergeant Roberts, had fabricated their accounts of the Appellant being asked thereafter to provide a specimen of breath on the Evidential Breath Machine.

[15] The Appellant was initially charged with:

1. refusing to take a breath test;

2. threatening to kill PC Dakin;

3. affray and

4. resisting police officers in the course of their duties – all charges which on the jury’s verdicts, the police knew to be unsustainable.

Those charges led to the Appellant being held in custody until his trial in May 1999. By the time of his trial the indictment preferred against the Appellant contained two counts – count one alleging dangerous driving, and count two alleging threats to kill. On the jury’s verdict the police always knew that count two the more serious charge was unsustainable. At the conclusion of the trial the Appellant was acquitted on both counts. Further summary offences including the failure to take a breath test which on the jury’s verdict the police knew to be unsustainable still proceeded in the magistrates’ court until discontinued on 1 September 1999.

[16] It is right to emphasise that the findings of the jury at the civil trial involved finding that the police had not only lied at the criminal trial but had persisted in their lies at the civil trial.

THE JUDGE’S DIRECTIONS AND THE LAW

[17] The judge based his directions on the court of appeal decision in Thompson v Commissioner of Police [1997] 2 All ER 762, [1997] 2 All ER 762, [1997] 3 WLR 403. That case was concerned with Appellants who were of good character. It decided first that in cases where juries were assessing damages in actions for assault, wrongful imprisonment or malicious prosecution arising out police misconduct, s 8(1) of the Courts and Legal Services Act 1990 had had the effect of ‘lowering the barrier against intervention’ in relation to such awards. That this was the effect of Thompson is supported by the majority in Clark v Chief Constable of Cleveland Police [1999] EWCA Civ 1357. Thompson decided second that it was appropriate to give juries both general guidance on awarding damages and guidance as to the range of awards. It further dealt with the proper approach to aggravated damages and exemplary damages.

[18] Thus at p 771 on aggravated damages the court said:

‘It is when the jury have to consider whether there should be an award of aggravated damages as additional compensation that the award in this class of case is more analogous to that in defamation proceedings. As the Law Commission point out in their admirable consultative paper Aggravated, Exemplary and Restitutionary Damages (Consultation Paper No 132 (1993) para 2.17ff there can be a penal element in the award of aggravated damages. However, they are primarily to be awarded to compensate the Claimant for injury to his proper pride and dignity and the consequences of his being humiliated. This injury is made worse for the Claimant because it is more difficult to excuse when the malicious motives, spite or arrogance are on the part of the police (see Rookes v Barnard [1964] 1 All ER 367 at 407ff, [1964] AC 1129 at 1221ff per Lord Devlin).’

[19] On exemplary damages on the same page the court said: -

‘It is when the jury make an award of exemplary damages that the similarity of this class of action with defamation is closest. However, a factor justifying the award of exemplary damages, which in defamation actions makes consistency in the proper amount to award less likely, is that often the award is to prevent a newspaper profiting from the libel by increasing its circulation. This element of profiting from your tort is almost invariably absent from this class of action. In addition, as the Defendant is usually a chief officer of police, the personality of the Defendant will not usually be significant in determining what the appropriate level of punitive damages should be. While the conduct calling for the award of exemplary damages may differ it is to be hoped that it will be rare indeed for the most senior officers in the force to be in any way implicated.

The fact that the Defendant is a chief officer of police also means that here exemplary damages should have a lesser role to play. Even if the use of civil proceedings to punish a Defendant can in some circumstances be justified it is more difficult to justify the award where the Defendant and the person responsible for meeting any award is not the wrong doer, but his ‘employer’. While it is possible that a chief constable could bear a responsibility for what has happened, due to his failure to exercise proper control, the instances when this is alleged to have occurred should not be frequent. There is also a greater problem of awarding exemplary as well as aggravated damages in the class of action under consideration because the very circumstances which will justify the award of aggravated damages are probably the same as those which make it possible to award exemplary damages. This accentuates the risk of a double counting. At least in defamation proceedings there is the additional factor of the Defendant profiting from the libel which provides the independent justification for the award of exemplary damages.’

[20] Under their general guidance the court said at p 773: -

‘(4) In a straightforward case of wrongful arrest and imprisonment or malicious prosecution the jury should be informed of the approximate figure to be taken as the correct starting point for basic damages for the actual loss of liberty or for the wrongful prosecution, and also given an approximate ceiling figure. It should be explained that these are no more than guideline figures based on the judge’s experience and on the awards in other cases and the actual figure is one on which they must decide.

(5) In a straightforward case of wrongful arrest and imprisonment the starting point is likely to be about GBP500 for the first hour during which the Claimant has been deprived of his or her liberty. After the first hour an additional sum is to be awarded, but that sum should be on a reducing scale so as to keep the damages proportionate with those payable in personal injury cases and because the Claimant is entitled to have a higher rate of compensation for the initial shock of being arrested. As a guideline we consider, for example, that a Claimant who has been wrongly kept in custody for 24 hours should for this alone normally be regarded as entitled to an award of about GBP3,000. For subsequent days the daily rate will be on a progressively reducing scale. (These figures are lower than those mentioned by the Court of Appeal of Northern Ireland in Oscar v Chief Constable of the Royal Ulster Constabulary [1992] NI 290 where a figure of about GBP600 per hour was thought to be appropriate for the first 12 hours. That case, however, only involved unlawful detention for two periods of 30 minutes in respect of which the Court of Appeal of Northern Ireland awarded GBP300 for the first period and GBP200 for the second period. On the other hand the approach is substantially more generous than that adopted by this court in the unusual case of Cumber v Chief Constable of Hampshire Constabulary (1995) Times, 28 January, in which this court awarded GBP350 global damages where the jury had awarded no compensatory damages and GBP50 exemplary damages.)

(6) In the case of malicious prosecution the figure should start at about GBP2,000 and for prosecution continuing for as long as two years, the case being taken to the Crown Court, an award of about GBP10,000 could be appropriate. If a malicious prosecution results in a conviction which is only set aside on an appeal this will justify a larger award to reflect the longer period during which the Claimant has been in peril and has been caused distress.

(7) The figures which we have identified so far are provided to assist the judge in determining the bracket within which the jury should be invited to place their award. We appreciate, however, that circumstances can vary dramatically from case to case and that these and the subsequent figures which we provide are not intended to be applied in a mechanistic manner.

(8) If the case is one in which aggravated damages are claimed and could be appropriately awarded, the nature of aggravated damages should be explained to the jury. Such damages can be awarded where there are aggravating features about the case which would result in the Claimant not receiving sufficient compensation for the injury suffered if the award were restricted to a basic award. Aggravating features can include humiliating circumstances at the time of arrest or any conduct of those responsible for the arrest or the prosecution which shows that they had behaved in a high-handed, insulting, malicious or oppressive manner either in relation to the arrest or imprisonment or in conducting the prosecution. Aggravating features can also include the way the litigation and trial are conducted. (The aggravating features listed take account of the passages in the speech of Lord Reid in Broome’s case [1972] 1 All ER 801 at 836, [1972] AC 1027 at 1085 and Pearson LJ in McCarey v Associated Newspapers Ltd (No 2) [1964] 3 All ER 947 at 957, [1965] 2 QB 86 at 104-105).’

[21] I would comment at this stage. First Thompson indicates that guidance is to be given in all cases, but so far as the figures are concerned the court recognised they were applicable to what it termed ‘a straightforward case’, and that they were not to be used in a ‘mechanistic manner’. The court was not concerned in identifying the appropriate bracket, for example, in a case where the Claimant was of bad character or in guiding judges as to the effect of bad character on awards of basic damages. Second where the Defendant is the employer of the police officers involved the judgment makes clear that exemplary damages are unlikely to have a role. Third, it is suggested that aggravated damages should be awarded if the aggravating features would result in the Claimant not receiving sufficient compensation for his injury.

[22] Clark (supra) was concerned with a Claimant of bad character. It is further directly in point in that the court ruled that the awards for wrongful arrest and false imprisonment of GBP750, and the damages for assault of GBP150 were unappealable, and considered solely the award of damages for malicious prosecution. The majority increased that award from GBP500 to GBP2000. The difference between the majority and the minority was first as to whether the ‘intervention barrier had been lowered’ by Thompson and second as to whether the conduct of the Claimant in that case inside the house which might have led to a perfectly proper alternative prosecution and conviction was a factor to be taken into account in assessing damages. Roch and Peter Gibson LJJ thought not (see pp 1363 and 1367); Henry LJ thought otherwise expressing himself in this way at the end of his judgment: -

’3.30 All in all this Appellant received GBP1,400 damages. If he had been differently arrested and differently charged, the likelihood is that he would have been convicted, he would have been at risk of losing his liberty and he would have had no claim whatsoever. I find it impossible to say that either the award under this head of damage or the totality of the award are far too low. It seems to me that the jury rightly took the view that Lord Woolf’s bracket was not meant to include those who set dogs on policemen, generally abuse the police, and tell the jury lies to profit from conduct which. differently charged, was criminal. In my judgment this court should not interfere with the jury’s award.’

[23] But Roch LJ and Peter Gibson LJJ clearly also thought that the bad character of the Claimant was a factor which made for a ‘discount’ on the damages. Their reasoning was this. Roch LJ first identified the heads of compensation for malicious prosecution as follows: -

‘Compensation for malicious prosecution has three aspects. First, there is the damage to a person’s reputation. The extent of that damage will depend upon the Claimant’s actual reputation and upon the gravity of the offence for which he has been maliciously prosecuted. The second aspect is the damage suffered by being put in danger of losing one’s liberty or of losing property. Compensation is recoverable in respect of the risk of conviction. McGregor on Damages 16th edition paragraph 1862 considers that an award under this head is basically for injury to feelings, unless there has been a conviction followed by imprisonment. The third aspect is pecuniary loss caused by the cost of defending the charge. There was no evidence of pecuniary loss in this case.’

[24] He then identified some improper conduct of the Claimant during the incident with which that case was concerned, which he accepted reduced the award made for false imprisonment, but he emphasised (relevant to the instant case) that such conduct could not be said to cause or contribute to the malicious prosecution. As regards malicious prosecution he said this:

‘With regard to the first head of compensation for malicious prosecution the jury were not dealing with a man of wholly good character. At the time of these awards the Appellant was not a man of good character. He had been cautioned in December 1992 for theft. He had a conviction at the Teesside Magistrates’ Court on 19 November 1993 for being drunk and disorderly. He was also convicted by that court on 15 December 1993 of stealing two packets of razor blades. Finally on 22 August 1995 he had been convicted by the magistrates of threatening words and behaviour. In respect of all three of those offences he was fined. He had a further caution for being in possession of a small piece of cannabis on the occasion that he was arrested for stealing the razor blades.

The jury may also have reached the conclusion that the Appellant was not a person who would be as concerned about facing a prosecution as others might be. Had the Appellant been a person of good character with normal sensitivities an appropriate award of damages, taking the figure of GBP2,000 as a starting point and then making allowance for the facts that the Appellant had to appear before the magistrates on no fewer than six occasions and that the prosecution endured over a period of 111/2 months, would, in my judgment, have been a figure in the region of twice or 21/2 times the sum suggested as the starting figure, namely GBP4,000 to GBP5,000. The sum actually awarded by the jury was an eighth or a tenth of these figures. Even making allowances for the Appellant’s cautions and convictions and for the fact that the Appellant may well have presented as someone who would not be as concerned when faced by prosecution for an offence under s 4 of the Public Order Act as others might be, I still view the award in this case of GBP500 as being inadequate, in the sense that it is substantially below what a reasonable jury could have thought necessary to compensate the Appellant. In my judgment the size of the award indicates that the jury probably took no account of the need to increase the starting figure of GBP2,000 because the malicious prosecution lasted nearly a year, before discounting that figure to take account of the two factors of the Appellant’s character and his convictions.’

[25] In Peter Gibson LJ’s judgment he expressed similar views to those expressed by Roch LJ and it is unnecessary to quote them.

[26] I accept of course that compensation for malicious prosecution has the three elements identified by Roch LJ. But I would emphasise that in my view some care must be taken in balancing the various elements. In some instances, albeit there may, in the case of a Claimant of bad character, be less loss of reputation, there may be greater risks of punishment if the prosecution were to succeed.

[27] All cases are different but where (as in the instant case) the malicious prosecution is for the very serious offence of threatening to kill a police officer, albeit the reputation of a man convicted of a very serious offence of violence (as here) may not suffer greatly, he is entitled to be compensated for the fact that (a) there is greater risk of the malicious prosecution succeeding and (b) a risk that he will get a longer prison sentence as a result of it succeeding, all of which will cause stress and anxiety.

[28] The judge in his direction on basic damages said this: -

‘The position here is this, ladies and gentlemen. It is for you to assess the figure. These are only brackets. We did not just pick the brackets out of the air. The brackets are based on a Court of Appeal case which we, as Judges, obviously have to follow in advising you as to the brackets. It is possible, of course, for you to exceed the brackets, but I would invite you, because it is only essentially right that there should be some sort of consistency, unless you are persuaded otherwise you should work within these brackets, but it is a matter for you.

In that event, if you work within the brackets, the brackets set out the figures there that have been discussed. The bracket for the assault is between GBP1,000 and GBP2,000. The most serious aspect of this case is the false imprisonment. The bracket there is between GBP7,500 and GBP12,500. For the malicious prosecution the bracket is GBP4,000 to GBP5,000. So it is up to you, ladies and gentlemen, but that is how I invite you to approach what we call the ‘basic damages’.’

[29] Neither counsel was critical of the judge’s direction but it seems to me, with respect, that it gave the jury very little guidance as to what they were compensating the Appellant for, particularly so far as malicious prosecution was concerned. It gave no guidance as to how they were to view the Appellant’s bad character. In my view guidance to juries dealing with malicious prosecution should spell out the elements identified by Roch LJ for which compensation is given. It should also, in a case of a Claimant of bad character, spell out how, even though his reputation may not be so damaged, there is a greater risk of being convicted and of receiving greater punishment if the prosecution succeeds.

[30] In my view, if the matter had been more fully explained to the jury, no reasonable jury could have gone below the GBP4,000, that being the bottom of the judge’s bracket. I would, if left to myself, have thought such a figure still too low, but the brackets chosen by the judge have not been criticised, and clearly the jury was taking the bottom end of the judge’s bracket in all instances.

[31] What then about aggravation? In this context the main thrust of Mr Ley-Morgan’s submission was that if one had regard to what started this incident, the Appellant to a great or some extent brought things on himself and that must have been in the jury’s mind. So far as malicious prosecution is concerned however, for the reasons given by Roch and Peter Gibson LJJ in Clark (see para 22 above), the Appellant’s conduct is not in any way causative of that tort. In any event I see force in Mr Murphy’s submission that if, because of the surprising lack of serious injury resulting from the assault, an award of GBP1,000 was appropriate for that assault, and if (possibly because the Appellant was accustomed to prison) he was only entitled to GBP7,500 for the period of custody between Christmas 1998 and May 1999, how can it be said that the Appellant has received proper compensation for ‘the humiliation’ or for the gratuitous violence and spraying of CS gas? So far as malicious prosecution is concerned, if GBP4,000 is the figure for basic damages, how does that compensate the Appellant for the fact that not only were lies told as a foundation to the prosecution, and not only were lies told at the criminal trial, but lies were told again at the civil trial? What then also about the alleged failure to take a breath test? The custody officer has been found to have made up the story that the Appellant refused that breath test. The custody officer is not a police officer who in the heat of the moment takes some action which is then covered up by false stories, a situation bad enough in itself; the custody officer is the officer appointed to protect the prisoner and for that officer to have been found to have fabricated a charge, or supported the fabrication of a charge, is more serious still.

[32] It seems to me that the figures at the bottom of the judge’s brackets, so far as basic damages are concerned, simply cannot be said to have compensated this Appellant for the way he was treated. Any reasonable jury should have appreciated that a failure to award something other than a substantial sum for aggravated damages would send out an entirely wrong message to the Respondent. The police officers humiliated the Appellant during the incident; they behaved in a high-handed, insulting, malicious and oppressive manner; those who were parties to the incident lied to found false charges, lied at the criminal trial and lied at the civil trial. The custody sergeant then fabricated or supported the fabrication of a story as well. No disciplinary proceedings of any kind have apparently resulted. No jury in my view could have awarded less than GBP10,000 as aggravated damages.

[33] As will appear from my citation from Thompson, this is not a case for exemplary damages.

[34] In the result I consider that the appeal should be allowed. I would increase the jury’s award of basic damages for malicious prosecution from GBP1,500 to GBP4,000 and award GBP10,000 by way of aggravated damages.

JUDGMENTBY-2: MOSES LJ:

JUDGMENT-2:
MOSES LJ:

I agree.

JUDGMENTBY-3: RICHARDS LJ:

JUDGMENT-3:
RICHARDS LJ:

I also agree.

Appeal allowed.

SOLICITORS:
Edwards Duthie; Legal Department, Metropolitan Police Service

A First Information Report (FIR) Becomes Substantive Evidence Only When The Maker Can Be Cross-Examined with regard to its TRUTHFULNESS AND CONSISTENCY: PUBLIC PROSECUTOR V LEE ENG KOOI [1993] 2 MLJ 322 CRIMINAL TRIAL NO 47-45-88 HIGH COURT (PENANG)

The Malayan Law Journal
PUBLIC PROSECUTOR V LEE ENG KOOI
[1993] 2 MLJ 322
CRIMINAL TRIAL NO 47-45-88
HIGH COURT (PENANG)
DECIDED-DATE-1: 31 MARCH 1993
VINCENT NG JC
CATCHWORDS:
Criminal Law – Possession of firearms and ammunition – Internal Security Act 1960 s 57(1)(a), (b)

Evidence – Statement – Police investigation report – Admissibility – Distinction between first information and non-first information police report – Whether prosecution can refuse to supply report on ground that it was not first information report – Criminal Procedure Code (FMS Cap 6) s 113

Evidence – Credibility – Discrepancies between police reports and testimony – Whether charge could stand

Criminal Procedure – Trial – Prosecution led two sets of evidence – No reliable and trustworthy evidence on which to convict accused

HEADNOTES:
The accused was charged with two charges of possession of firearms and ammunition without lawful excuse in a security area under s 57(1)(a) and (b) of the Internal Security Act 1960. The prosecution called two witnesses, PW3 and PW9. PW3 stated that he led a police raiding party, including PW9, to a house in Air Itam, Pulau Pinang. On entering the compound of the house, PW3 said he saw the accused walking towards them holding a grey bag (P4), and after the accused was apprehended, P4 was examined before the accused, in which PW3 said they found the various items which were material in both charges. A subsequent search of the house revealed no incriminating items. However a black steel cylinder (D22), within which were other item also material in both charges, was found on the same day in the compound of the house. The details of what were in the cylinder were elicited from the other witness, PW9. Both PW3 and PW9 corroborated each other in material particulars. The only divergence in evidence between the two witnesses was that PW9 included two further exhibits, namely a pair of black long pants (P19) and a handkerchief (P20) as part of the contents of P4; whereas PW3 categorically asserted during his examination-in-chief that nothing else was found besides the items he had enumerated in his evidence. PW3 also stated that he had subsequently lodged a police report (P27) on the matters aforesaid. P27 was only put in as a prosecution exhibit subsequently, when he was recalled. When asked by the defence counsel during cross-examination PW3 said that he had refreshed his memory with P27 while giving evidence in court. PW9, during cross-examination, denied that the contents of P4 were in fact found in the compound in the steel cylinder and not in the grey bag (P4). Defence counsel immediately applied for a court order that a copy of P27 be  [*323] supplied to him by the prosecution to enable him to cross-examine PW9 and other witnesses if it became necessary, which the court allowed.

Held, acquitting and discharging the accused:
(1)   The complete removal of the original provision in s 113(1) of the
Criminal Procedure Code (FMS Cap 6) (‘the Code’) which states that ‘no
statement made by any person … in the course of a police investigation …
shall be used as evidence’ and its replacement with a new provision which
states that ‘where any person is charged … any statement … by that person
… shall be admissible in evidence … and … may be used in
cross-examination for the purpose of impeaching his credit’, has the effect
of clearly and decisively removing the pre-amendment distinction between
first information and non-first information police reports. Therefore the
prosecution cannot refuse to supply a copy of PW3′s report (P27) to the
defence on the ground that it was not a first information report or for any
other reason. Although such a report as P27 could not and was not put in for
corroborative purposes, as soon as it was put in as a prosecution exhibit, it
becomes substantive evidence and was liable to be commented upon by the
defence as regards the consistency and truthfulness of the witness.
(2)   P27 clearly disclosed that the subject matter of the first charge
being the three revolvers, were never found in P4. This would mean that the
accused was not, as alleged in the oral testimony of the witnesses, caught
red-handed with the three revolvers but rather these three revolvers were
found outside the house encased in D22. When the court considered the parol
evidence of PW3 and PW9 and the statements in P27, the court found that there
was an acute and material contradiction between them in regard to the
exhibits found in P4. Therefore credible evidence on the first charge was
thus lacking and the charge could not stand as it had not been made out that
the subject matter of the charge was in the possession of the accused.
(3)   As regards the second charge, the contents of P27 and the oral
evidence of PW3 and PW9 could not both be true and the court found that both
the witnesses had lied on facts which were verifiable. In such a case where
the prosecution leads two sets of evidence, each one of which contradicts and
strikes at the other and shows it to be unreliable, the court will be left
with no reliable and trustworthy evidence upon which a conviction of the
accused might be based. There were also other infirmities and unsatisfactory
features in the prosecution case which made it unsafe to call the accused to
enter upon his defence.
(4)   In view of PW3′s admission that he had reviewed his report (P27)
before he gave evidence and had also on occasion even referred to it while
being cross-examined, he had given evidence in an unethical manner, without
disclosing at the material time the gross  [*324] discrepancies in what
he saw in P27; and had utterly discredited himself as a witness and
intentionally misled the court. P27 stated that the three revolvers were
found in D22 but PW3 testified that the same were found in P4. As P27 is a
report lodged on the day of the offence, it is far more likely that all the
offending items in both charges were found in D22 and not on the person of
the accused. Thus the basic foundation of the prosecution case that the
accused was caught red-handed crumbled.
(5)   It is conduct unseeming and wholly incredible that the learned DPPs,
being fully aware of the contents of P27 and keenly appreciating the
ramifications of the material piece of oral evidence as it tumbled out from
PW3, did not at that point in time and of their own volition, promptly throw
in P27 at PW3 and sought to seek clarification from him. This would have
avoided their skirmish with s 91 of the Evidence Act 1950. In this case, the
learned DPPs had sought to get PW3 to clarify by recalling him and producing
P27 as an exhibit, only after the court had ordered the supply of a copy of
same to counsel. Here the conduct of the DPPs had given counsel the
impression of suppression of the truth.
Per curiam:
It is impermissible to read ss 35 and 157 of the Evidence Act 1950 as
permitting the prosecution to use statements made and recorded after
investigations have commenced, be it in the form of first information report
or non-first information report, to corroborate the testimony of a witness,
because it is unjust and unfair to the accused to allow subsequent or
non-first information reports detailing and setting out materials derived
from an investigation, initiated and set into motion by a first information
report, to be used for corroborative purposes, as their contents will be made
to dovetail with materials in the case as have then developed.

[ Bahasa Malaysia summary

Situduh telah didakwa atas dua tuduhan memiliki senjata api dan amunisi tanpa sebab yang sah di dalam satu kawasan keselamatan di bawah s 57(1)(a) dan (b) Akta Keselamatan Dalam Negeri 1960. Pihak pendakwa telah memanggil dua orang saksi, PW3 dan PW9. PW3 menyatakan bahawa beliau telah memimpin suatu rombongan serbuan polis, termasuk PW9, ke sebuah rumah di Air Itam, Pulau Pinang. Sebaik sahaja beliau memasuki perkarangan rumah itu, PW3 berkata bahawa beliau melihat si tertuduh berjalan ke arah mereka memegang sebuah beg warna kelabu (P4), dan selepas si tertuduh diberkas, P4 telah diperiksa di hadapannya dan di dalamnya, kata PW3, mereka menjumpai berbagai barangan yang penting kepada kedua-kedua tuduhan itu. Suatu penggeledahan rumah itu tidak mendedahkan apa-apa barangan yang membabitkan si tertuduh. Walau bagaimanapun, sebuah silinder keluli berwarna hitam (D22), di dalamnya terdapat beberapa barangan lain yang juga penting kepada  [*325] kedua-dua tuduhan itu, telah dijumpai pada hari yang sama di halaman rumah itu. Butir-butir tentang apa yang terdapat di dalam silinder itu telah diperolehi daripada saksi yang satu lagi, PW9. Kedua-dua PW3 dan PW9 memberi keterangan yang menyokong satu sama lain dari segi yang penting. Perbezaan tunggal dalam keterangan kedua-dua saksi itu ialah PW9 telah menyertakan dua eksibit tambahan, yakni sepasang seluar panjang berwarna hitam (P19) dan sehelai saputangan (P20) sebagai sebahagian daripada kandungan P4; sementara PW3 menegaskan semasa pemeriksaan utama bahawa tiada apa-apa lagi yang dijumpai selain daripada barangan yang disenaraikan dalam keterangannya. PW3 juga menyatakan bahawa beliau kemudiannya telah membuat suatu laporan polis (P27) tentang perkara tersebut. P27 cuma kemudiannya dimasukkan sebagai eksibit pihak pendakwa apabila PW3 dipanggil semula. Apabila disoal oleh peguambela semasa pemeriksaan balas, PW3 berkata bahawa beliau telah menyegarkan ingatannya dengan P27 semasa memberi keterangan di mahkamah. PW9, semasa pemeriksaan balas, menafikan bahawa kandungan P4 sebenarnya dijumpai di perkarangan rumah di dalam silinder keluli itu dan bukan di dalam beg kelabu (P4). Peguambela dengan segera memohon kepada mahkamah untuk perintah supaya satu salinan P27 diberikan kepadanya oleh pihak pendakwa untuk membolehkannya memeriksa balas PW9 dan saksi-saksi yang lain jika perlu dan permohonan itu telah dibenarkan.

Diputuskan, membebaskan dan melepaskan si tertuduh:
(1)   Pengeluaran sepenuhnya peruntukan asal di dalam s 113(1) Kanun Acara
Jenayah (FMS Bab 6) (‘Kanun itu’) yang menyatakan bahawa ‘no statement made
by any person … in the course of a police investigation … shall be used
as evidence’ dan penggantiannya dengan peruntukan baru yang menyatakan bahawa
‘where any person is charged … any statement … by that person … shall
be admissible in evidence … and … may be used in cross-examination for
the purpose of impeaching his credit’, mempunyai kesan yang jelas dan pasti
untuk mengetepikan perbezaan yang wujud sebelum pindaan itu di antara laporan
polis pemberitahuan kali pertama (first information police report) dan
laporan polis pemberitahuan bukan kali pertama. Lantaran itu, pihak pendakwa
tidak boleh enggan memberikan satu salinan laporan PW3 (P27) kepada pihak
pembela atas alasan bahawa ianya bukan satu laporan pemberitahuan kali
pertama atau untuk apa-apa alasan yang lain. Walaupun laporan seperti P27
tidak boleh dan tidak dikemukakan untuk tujuan sokongan (corroboration),
sebaik sahaja ianya dikemukakan sebagai eksibit pihak pendakwa, ia menjadi
keterangan substantif dan pihak pembela boleh mengulas tentangnya berkenaan
dengan ketekalan dan kejujuran saksi itu.
(2)   P27 mendedahkan dengan jelas bahawa bahan perkara tuduhan pertama,
iaitu tiga pucuk pistol, tidak sekali-kali dijumpai di dalam P4. Ini bermakna
bahawa si tertuduh tidak, sebagaimana yang didakwa melalui testimoni lisan
saksi, ditangkap dengan benda yang membabit iaitu tiga pucuk pistol dalam
tangannya,  [*326] pada hakikatnya tiga pucuk pistol itu telah dijumpai
di luar rumah itu di dalam D22. Apabila mahkamah mempertimbangkan keterangan
lisan PW3 dan PW9 dan kenyataan di dalam P27, mahkamah mendapati bahawa
terdapat percanggahan yang amat sangat dan penting di antara mereka tentang
eksibit yang dijumpai di dalam P4. Oleh itu terdapat kekurangan keterangan
yang boleh dipercayai atas tuduhan pertama dan tuduhan itu tidak boleh
disokong kerana ianya tidak dibuktikan bahawa badan perkara tuduhan itu
berada di dalam pemilikan si tertuduh.
(3)   Berkenaan dengan tuduhan kedua, kandungan P27 dan keterangan lisan PW3
dan PW9 tidak boleh kedua-duanya benar dan mahkamah mendapati bahawa
kedua-dua orang saksi telah berbohong atas fakta yang boleh ditentusahkan.
Dalam keadaan di mana pihak pendakwa mengemukakan dua set keterangan, setiap
satunya bercanggah dengan dan melawan yang lain dan menunjukkannya sebagai
tidak boleh dipercayai, mahkamah akan ditinggalkan tanpa apa-apa keterangan
yang boleh dipercayai yang boleh mengasaskan penyabitan si tertuduh. Terdapat
juga kelemahan-kelemahan yang lain dan aspek-aspek yang tidak memuaskan dalam
kes pihak pendakwa yang mengakibatkan tidak selamat untuk memanggil si
tertuduh mengemukakan pembelaannya.
(4)   Memandangkan pengakuan PW3 bahawa beliau telah mengulangkaji
laporannya (P27) sebelum beliau memberi keterangan dan juga telah dari masa
ke semasa merujuk kepadanya semasa diperiksa balas, beliau telah memberi
keterangan dalam cara yang tidak etikal, tanpa mendedahkan pada masa yang
penting percanggahan yang besar yang telah dilihatnya di dalam P27. Beliau
telah merosakkan kebolehpercayaannya sebagai seorang saksi dan telah
memperdaya mahkamah dengan sengaja. P27 menyatakan bahawa tiga pucuk pistol
itu telah dijumpai di dalam D22 tetapi PW3 telah memberi keterangan bahawa
mereka dijumpai di dalam P4. Memandangkan yang P27 adalah laporan yang dibuat
pada hari apabila kesalahan itu dilakukan, adalah jauh lebih mungkin bahawa
kesemua barangan yang menyalahi undang-undang di dalam kedua-dua tuduhan itu
dijumpai di dalam D22 dan bukan pada badan si tertuduh. Lantaran itu, asas
kes pihak pendakwa bahawa si tertuduh telah ditangkap dengan barangan yang
membabit dalam tangannya roboh.
(5)   Adalah kelakuan yang tidak patut dan sama sekali sukar hendak
dipercayai bahawa penolong pendakwa raya, sedangkan beliau mengetahui dengan
jelas akan kandungan P27 dan memahami dengan baik kesan keterangan lisan yang
penting yang diberikan oleh PW3, tidak pada detik masa itu juga dan mengikut
kerelaan hatinya sendiri dengan segera membawa P27 ke perhatian PW3 dan
meminta penjelasan daripadanya. Ini akan mengelakkan pelanggaran s 91 Akta
Keterangan 1950. Dalam kes ini, penolong pendakwa raya telah cuba mendapat
penjelasan daripada PW3 dengan memanggilnya semula dan mengemukakan P27
sebagai  [*327] satu eksibit cuma selepas mahkamah telah mengarahkan
pemberian satu salinan P27 kepada peguambela. Di sini, kelakuan penolong
pendakwa raya telah memberikan tanggapan kepada peguambela bahawa beliau
telah cuba menyelindungi kebenaran.
Per curiam:
Seksyen-seksyen 35 dan 157 Akta Keterangan 1950 tidak boleh dibaca sebagai
membenarkan pihak pendakwa menggunakan kenyataan yang dibuat dan dicatit
selepas penyiasatan telah bermula, sama ada ianya dalam bentuk laporan
pemberitahuan kali pertama atau laporan pemberitahuan bukan kali pertama
untuk menyokong testimoni seseorang saksi, kerana ianya tidak adil dan tidak
saksama kepada si tertuduh jika kebenaran diberi untuk laporan terkemudian
atau laporan pemberitahuan bukan kali pertama yang menyenaraikan bahan-bahan
yang diperolehi daripada suatu penyiasatan, yang dimulakan oleh satu laporan
pemberitahuan pertama, digunakan untuk tujuan memberi sokongan. Ini adalah
kerana kandungannya akan dibentuk supaya padan dengan bahan perkara dalam kes
itu sebagaimana yang telah terbentuk.]

Notes

For cases on the offence of possession of firearms and ammunition, see 4 Mallal’s Digest (4th Ed) paras 260-265.

For a case on the admissibility of a police investigation report as evidence, see 7 Mallal’s Digest (4th Ed) para 1260.

For a case on the credibility of a witness when there are discrepancies between the police report and the testimony, see 7 Mallal’s Digest (4th Ed) paras 521 and 1371.

Cases referred to
PP v Lee Hoay Chun Penang High Court Trial 47(58)-13-88 (Penang High Court Trial No 47(58)-13-88) (unreported)
Wai Chan Leong v PP [1989] 3 MLJ 356
Das v Weston 16 CWN
PP v Foong Chee Cheong [1970] 1 MLJ 97
Ah Mee v PP [1967] 1 MLJ 220
PP v Ibrahim bin Ariffin Penang High Court Criminal Trial 47-17-91 (Penang High Court Criminal Trial No 47-17-91) (unreported)
Pavone v PP [1986] 1 MLJ 72
PP v Mohamed Noor bin Jantan [1979] 2 MLJ 289
Haw Tua Tau v PP [1981] 2 MLJ 49
Munusamy v PP [1987] 1 MLJ 492
PP v Peter Yeoh & Anor [1993] 1 CLJ 78
Abdullah Zawawi v PP [1985] 2 MLJ 16
PP v Yap Boon Chang [1992] 2 CLJ 1257

Legislation referred to

Criminal Procedure Code (FMS Cap 6) s 113(1)

Evidence Act 1956 s 157  [*328]

V Sithambaram and M Athimulam (Kumar, Sitham & Co) for the accused.

Kamardin bin Hashim and Ahmad Shahrir bin Mohd Salleh (Deputy Public Prosecutors) for the public prosecutor.

LAWYERS: V Sithambaram and M Athimulam (Kumar, Sitham & Co) for the accused.

Kamardin bin Hashim and Ahmad Shahrir bin Mohd Salleh (Deputy Public Prosecutors) for the public prosecutor.

JUDGMENTBY: VINCENT NG JC

The accused was charged as follows:
First charge
That you on 6 October 1986 at about 6.50am at a house No 451-P, Jalan
Pokok Cherry, Air Itam, in the District of Georgetown, in the State of
Penang, within security area as proclaimed by the Yang di-Pertuan Agong
vide PU(A) 148 dated 15 May 1969, without lawful excuse did have in
your possession firearms, to wit, one .38 Smith and Wesson special
revolver bearing No (Yoke) 51327 mod 10-5, one .38 Smith and Wesson
special revolver bearing No (Yoke) 67601 mod. 10-5, and one .38 Smith
and Wesson special revolver bearing No 24152, without lawful authority,
that you have thereby committed an offence under s 57 (1)(a) of the
Internal Security Act 1960 (Rev 1972) and punishable under s 57(1) of
the same Act.
Second charge
That you on 6 October 1986 at about 6.50am at a house No 451-P, Jalan
Pokok Cherry, Air Itam, in the District of Georgetown, in the State of
Penang, within security area as proclaimed by the Yang di-Pertuan Agong
vide PU(A) 148 dated 15 May 1969, without lawful excuse did have in
your possession ammunition, to wit 86 rounds of .38 inch special
without lawful authority, and that you have thereby committed an
offence under s 57(1)(b) of the Internal Security Act 1960 (Rev 1972)
and punishable under s 57(1) of the same Act.

At the opening speech of the learned deputy public prosecutor, Encik Kamardin bin Hashim (assisted by Encik Ahmad Shahrir bin Haji Mohd Salleh) stated that the prosecution would prove both the charges by direct and circumstantial evidence.

The prosecution called two material and principal witnesses, being ASP Sat Pal Jain s/o Churanji Lal (PW3) and Insp Tan Boon Hooi (PW9).

PW3 stated that on 6 October 1986 at 6.50am he led a police raiding party to raid a house No 451-P, Jalan Pokok Cherry, Air Itam, Pulau Pinang (hereinafter called ‘the said house’) together with 16 other police officers including PW9. He and the said members of the raiding party entered the compound of the said house through the front gate of the fence which was (until then) closed but not padlocked. When they entered the house compound PW3 saw, on the right at a distance of approximately 12-15ft away from him, a male Chinese (identified as the accused) walking towards him to the said front gate while at the same time holding a grey bag (identified as P4) in his right hand. As soon as the accused saw the police raiding party he tried to escape and PW3 and the other officers of the raiding party shouted, ‘Berhenti, polis! Polis,’ while they chased after the accused. PW3 together with three other raiding officers then apprehended the accused after some struggle which resulted in the singlet worn by the accused being torn, blood stained and divested from his person. The moment the accused was caught, P4 which he was then holding fell onto the floor and he was then immediately handcuffed.

[*329] P4 was then examined in front of the accused and when the bag was unzipped they found the following items:
(1)   a glucose tin (P5) within which contained one yellow plastic bag
(P5(A)) which held 39 live bullets of .38 special calibre (P5(B)).
(2)   one dark blue coloured sock (P6) which held 15 live bullets of .
38 special calibre (P6(C)).
(3)   one grey coloured sock (P7(A)) which held 18 live bullets (P7(C))
of a .38 special calibre.
(4)   one white coloured sock with blue stripes (P8(A)) which held 14
live bullets of a .38 special calibre (P8(C)).
(5)   one blue coloured sock (P9(A)) which held one Smith & Wesson
special revolver bearing serial No 51327 (P9(C)).
(6)   one blue coloured sock (P10(A)) which held one Smith & Wesson
special revolver bearing serial No 67601 (P10(C)).
(7)   one white coloured sock (P11(A)) which held one Smith & Wesson
special revolver bearing serial No 24152 on its butt (P11(C)).
(8)   one pair of handcuffs of ‘Super-K’ brand (P14).

This witness also said, to quote: ‘Tiada lain-lain barang kes dijumpai dalam P4′. PW3 also found and arrested four females in the said house, who were the wife and three children of the accused. He subsequently conducted a search of the said house and found no incriminating items therein.

ASP Hasni bin Hitam Sopki (PW6), a firearms expert, testified that the aforesaid three revolvers (P9(C), P10(C) and P11(C)) were serviceable and dischargeable and the 86 bullets (P5(B), P6(C), P7(C) and P8(C)) were live and usable bullets. Neither his expertise nor his findings were challenged by the defence.

PW3 however said that at about 9am on the same day, following a search in the compound outside the said house, Sgt Ramli found a black steel cylinder closed with lid (identified as (D22)) which contained one pistol, two revolvers and 109 bullets, the details of which was elicited from PW9 as follows:
(i)   one white coloured sock (D23) which held one Llama 11 pistol of 9
mm .38 calibre (with serial number erased) with one empty
magazine (the pistol together with the magazine marked as D23(A));
(ii)  one white coloured sock (D24) which held one Smith & Wesson
revolver of .38 calibre bearing Serial No CTG 41914 (D24(A));
(iii)  one white coloured sock (D25) which held one Smith & Wesson
special revolver bearing Serial No CTG 54685 of .38 calibre
(D25(A)); and
(iv)  109 bullets.

Both these witnesses namely PW3 and PW9 corroborated each other in material particulars, particularly that P5(B), P6(C), P7(C) and P8(C) (ie totalling 86 of .38 special live bullets) and P9(C), P10(C) and P11(C) (the three .38 Smith & Wesson special revolvers) were found in the grey bag (P4) held by the accused in his right hand when he was apprehended. The only divergence in evidence between these two witnesses being that PW9 included two further exhibits namely a pair of black long pants (Pl9) and a handkerchief (P20) as part of the contents of P4, whereas PW3 categorically  [*330] asserted in his examination-in-chief that nothing else was found therein besides the items he had enumerated in his evidence.

PW3 also said he lodged a police report being Air Itam Police Station Report No 2440-1/86 (P27) at 12.30pm on the said day, ie 6 October 1986 (only put in as a prosecution exhibit subsequently, when he was recalled). When PW3 was asked by defence counsel in cross-examination whether he had refreshed his memory with this report, he admitted as follows, to quote him: ‘Sebelum saya memberi keterangan saya ada membaca statement dan laporan polis — laporan polis saya membuat pada 6 Oktober 1986 pukul 12.30 petang.’ When this witness was recalled by the prosecution in order to tender P27 he again stated under cross-examination: ‘Sebelum dan semasa saya memberi keterangan dalam mahkamah saya telah dan ada merujuk kepada P27.’

When, in cross-examination, PW9 denied the question put to him by Mr Sithambaram that the contents of P4 were in fact found in D22 at the compound outside the said house and not in P4, counsel immediately applied for an order of this court that a copy of P27 be supplied to him by the prosecution to enable him to cross-examine this and other witnesses if it became necessary. This was objected to by the learned DPP Encik Kamardin and the court’s ruling was as follows:

The complete removal of the original provision in s 113(1) of the Criminal Procedure Code (FMS Cap 6) (‘the CPC’) by virtue of Act A324 which states: ‘No statement made by any person … in the course of a police investigation … shall … be used as evidence’ and its replacement with a new provision which states: ‘Where any person is charged … any statement … by that person … shall be admissible in evidence … and … may be used in cross-examination for the purpose of impeaching his credit’ — the latter provision concerns and pertains only to any person who is charged as opposed to the earlier generalized provision — has the effect of clearly and decisively removing the pre-amendment distinction between first information and non-first information police reports.

There is thus no justification for the refusal by the learned DPP to supply a copy of PW3′s report to the defence on the ground that same is not a first information report or for any other reason; it being also, a public document by virtue of s 35 of the Evidence Act 1950 (‘the Act’). See PR v Lee Hoay Chun and Wai Chan Leong vs PP at p 1171E (right).

The only residual distinction that remains is that whereas a first information report may be tendered and admitted in evidence under s 108A of the CPC, if only due to its value for the purposes of comparing its material with subsequent materials derived from investigations ensuing the first information report, it is nevertheless impermissible to read ss 35 and 157 of the Act as permitting the prosecution to use statements made and recorded after investigations have commenced, be it in the form of police reports or otherwise, eg non-first information reports, to corroborate the testimony of a witness.

It is patently unfair to the accused persons and unjust to allow subsequent or non-first information reports detailing and setting out materials derived from an investigation, initiated and set into motion by a first information report, to be used for corroborative purposes. The reason being that the  [*331] contents of such subsequent reports would obviously be made to dovetail with materials in the case as has then developed. The import of the words [in italics] in the expression ‘… before any authority legally competent to investigate the fact …’ in s 157 of the same Act fortifies this view. See Das v Weston ; PP v Foong Chee Cheong and Ah Mee v PP .

Although P27 could not be and was not put in for corroborative purposes, as soon as it was put as prosecution exhibit, it became substantive evidence and liable to be commented upon by the defence as regards consistency and truthfulness of PW3.

As the court held the view that it was imprudent to take a peep into the contents of P27 before making a ruling on counsels’ application, neither the court nor counsel were then aware of the gathering thunderstorm that P27 generated in its wake.

Just a week earlier this court had allowed a similar application by the defence in another case based upon the same principles. However, counsel therein could make nothing of the copy of the police report supplied to him pursuant to my ruling in his favour. See PP v Ibrahim bin Arifin .

Following the court’s order that the copy of P27 be supplied to the defence the learned deputy public prosecutors recalled PW3 and formally tendered P27 as an exhibit. He then asked PW3 to explain the very material discrepancy between his oral testimony and P27. This was strongly opposed by Mr V Sithambaram, though the latter did not object to the tendering of P27 per se as an exhibit for obvious reasons.

After hearing submissions by both parties, the court upheld counsel’s objection on the following grounds:
(1)   A police report is the sort of document which s 107(i) of the CPC
says has to be reduced to writing, and as such it is clearly a
document in writing within the purview of ss 91 and 92 of the
Act, which excludes the admission of parol evidence for the
purpose of contradicting, varying or subtracting from its terms.
(2)   Section 91 of the Act applies equally to criminal trials no less
than civil proceedings. See Ah Mee v PP at p 222I (left) to C
(right) and p 223A (left). This case had also been cited with the
approval in Pavone v Public Prosecution at p 74H (left)
wherein Edgar Joseph Jr J (as he then was) had said, to quote:
‘This in turn would bring into play s 91 of the Act which applied
as much to criminal as to civil proceedings. So far as material
to this case, it provides, “In all cases in which any matter is
required by law to be reduced to the form of a document no
evidence shall be given in proof of the terms … of such matter
except the document itself.” Similarly, s 92 of the Act would
operate to exclude all parol evidence seeking to contradict or
vary what was set out in writing.’
(3)   It was not a case where the learned deputy was applying to
impeach PW3.
(4)   PW3 had also stated that he had not only refreshed his memory
with P27 before he testified, but indeed he made several requests
to refer to and was in fact staring at the report while he gave
evidence. He could and should have then revealed the discrepancy
and enlightened the court then if any explanation was needed.

[*332] As the prosecution had tendered P27 it ought to be taken to rely on its contents as part of its case and also to invite comments thereon by the defence.

The comments and my findings being:

A On the first charge

P27 clearly disclosed that the subject matter of the first charge being the three revolvers, were never found in P4. This would mean that the accused was not, as alleged in the oral testimony of the witnesses, caught red-handed with the three revolvers being exhs P9(C), P10(C) and P11(C) but rather these three revolvers were found outside the house encased in D22. PW3 said, ‘Di sekitar kawasan luar rumah, Sgt Ramli jumpa satu cylinder besi yang mengandungi satu pistol, dua revolver dan 109 butir peluru’.

It was submitted that P27 was lodged by PW3 as complainant in the case. It was this report that caused the opening of investigation papers. It was a detailed report concerning the manner of arrest and the exact items seized, with serial numbers, calibre and make, etc of the five revolvers and one pistol, and therefore a complete report of the respective contents of P4 and D22.

PW3 said that a detailed search of P4 was carried out inside the said house. This was when he also noted the serial numbers of the three revolvers and counted the 86 bullets as the exhibits were arranged therein, and this was confirmed by PW9. The police photographer (PWl) tendered the photographs P2(F) and (G) showing P4 and its contents.

When the court considers the parol evidence of PW3 and PW9 and the photos P2(F) and P2(G) vis-a-vis the statements in P27, the court finds that there is an acute and material contradiction between them in regard to the exhibits found in P4.

According to P27 the accused was not arrested with the three revolvers P9(C), P10(C) and P11(C) in P4 (the subject matter of the first charge) but these three revolvers were found in D22. It is thus my finding that P27 had the effect of demolishing and rebutting the oral evidence of PW3 and PW9 as well as the photographs P2(F) and P2(G) for the purposes of s 180 of the CPC. PP v Mohamed Noor bin Jantan at p 290C (left).

Furthermore, Sgt Ramli was not called to enlighten the court as to whether the said three revolvers were found in P4 or D22. It is thus inherently incredible for the three said revolvers to be found in two places, ie in P4 (a grey bag) and also in D22 at the compound outside the house. See Haw Tua Tau vs PP and Munusamy v PP . Credible evidence on the first charge is thus lacking and the charge cannot stand as it has not been made out that the subject matter of the charge were in the possession of the accused.

B On the second charge

The statements in P27 would imply that besides all the bullet exhibits, namely, P5(B) (39 live bullets), P6(C) (15 live bullets), P7(C) (18 live bullets) and P8(C) (14 live bullets) totalling 86 bullets, 83 other live bullets  [*333] were also found in P4 (making a grand total of 169 bullets) but none were found in D22. The dilemma is that whereas P27 says that 169 bullets were found in P4, both PW3 and PW9 testified that 86 bullets were found in P4 and 109 bullets were found in D22, thus making a grand total of 195 bullets recovered on that day. It is impermissible for the court to amend the second charge from 86 bullets to 195 bullets as both of the said witnesses had not said that the accused was also in possession of the 109 bullets found in D22 and the same were not produced, identified or marked. It also follows that since the 109 bullets were not produced and marked separately the court would not be able to ascertain whether a portion or all of the 86 bullets came from the 109 bullets found in D22.

By the same token, even on the basis of P27, as the balance 83 bullets allegedly found in P4 were not produced in court and marked, the court cannot amend the second charge from 86 bullets to 169 bullets in as much as the court would not know the identity of the 83 bullets allegedly found in P4 according to P27.

This is quite apart from the implication that the two versions, in P27 as opposed to their oral testimony on the total bullets recovered on that day, would leave 26 bullets unaccounted for.

The contents of P27 and the oral evidence of PW3 and PW9 both cannot be true. If P27 is false, then PW3 could be charged under s 182 of the Penal Code (FMS Cap 45) for having lodged a false report punishable with imprisonment for a term which may extend to six months and if the evidence of PW3 and PW9 in this court in the capital charge is false, they shall be liable to be charged under s 194 of the Penal Code (FMS Cap 45) punishable with imprisonment for a term which may extend to 20 years and if they have given or fabricated false evidence, intending thereby to cause the accused to be convicted of an offence which is capital, they shall be punished either with death or the punishment hereinbefore described.

Could such evidence which would attract a criminal charge against the witness in either event aforesaid, be used to found a prima facie case against the accused? My answer is in the negative.

The prosecution has called PW3 and PW9 as witnesses of truth and as their evidence have not been impeached, their contradiction in respect of revolvers seized and gross inconsistencies in respect of the bullets when considered in conjunction with P27, remains. This court holds that they had lied on facts which are verifiable and consequently what credence could be attached to their testimony on facts which are not verifiable?

In his reply, the learned DPP Encik Kamardin also admitted that the evidence adduced in court amounted to two versions of the prosecution case.

The function of the court in a criminal trial is to find whether the person arraigned before it as the accused is guilty of the offence with which he is charged. For this purpose the court scans the material on record to find whether there is any reliable and trustworthy evidence upon the basis of which it is possible to found the conviction of the accused and to hold that he is guilty of the offence with which he is charged. If in a case the prosecution leads two sets of evidence, each one of which contradicts and  [*334] strikes at the other and shows it to be unreliable, the result would necessarily be that the court would be left with no reliable and trustworthy evidence upon which the conviction of the accused might be based. Inevitably, the accused would have the benefit of such a situation.

I have also found in the prosecution case the following infirmities and unsatisfactory features which makes it unsafe for me to call the accused to enter upon his defence, though this finding pales in comparison with my above findings in respect of counsel’s complaints as in (a) and (b) below.
(i)   PW3 said that he took with him all the exhibits found on that day
some time after 9am and he lodged a police report at 12.30pm on
the same day. There was no evidence as to where he kept the
exhibits and who guarded them during this interval, considering
that they were not light exhibits.
(ii)  The bullets recovered from P4 and from D22 (as per oral evidence)
were not individually marked to distinguish the two respective
recoveries; the 86 and 109 bullets have not been kept in separate
envelopes or sealed or marked and neither was there evidence that
they were kept separately until about 11am on the following day
when it was handed to the IO Tan Kok Liang (PW2). See PP v
Peter Yeoh & Anor
.
(iii)  Insp Seah Chong Beng who took out and returned a particular
revolver three times and who was also the officer who collected
all the exhibits from PW8 and handed to PW4, was not called but
merely offered. Offering and making available witnesses to the
defence by the prosecution is only for the sole purpose of
avoiding the invocation of s 114 (9) of the Act by the defence,
and not to enable the prosecution to discharge the burden,
incumbent upon them throughout the case, to prove the essentials
of the charge, including the fact that the exhibits produced in
court are the exhibits seized from the accused, ie an unbroken
chain of handling of the material exhibits. See Abdullah Zawawi
v PP
.
(iv)  The torn blood stained singlet which the accused was alleged to
have worn at the time he was caught (to show the manner he was
caught as claimed) was neither recovered nor produced as an
exhibit.

Counsel Mr Sithambaram prepared his submission of no case to answer with truly uncommon passion and addressed the court at length with equal vigour.

The main thrust of the submission — nay, complaint — was that, to quote him:
(a)   in regard to the two witnesses:
P27 has afforded the court to hold that PW3 and PW9 were lying through
their teeth. If the police report is a false report he is chargeable
under s 182 of the Penal Code and if their evidence in a capital case
is false he is chargeable under s 194 of the Penal Code punishable with
20 years imprisonment; then such evidence cannot possibly found a prima
facie case under s 180 of the CPC;
and,
(b)   in regard to the conduct of the two DPPs, he had this to say:
I seriously submit that there has been a very deliberate and material
suppression of evidence by the learned DPPs in that P27 was not
introduced by the prosecution  [*335] when PW3 gave evidence
contradicting his police report which was in the hands of the
prosecution. Their conduct gave me sleepless nights. P27 could not have
come to light if the court had not ordered a copy of P27 to be
supplied. Had the report not been produced it would have caused a gross
miscarriage of justice. The prosecution had sought to produce P27 for
clarification purposes only after they were caught with their pants
down.

These words rang loud with reverberations and inevitably called for this court’s comments. With respect I have found transgressions by the two witnesses and the DPPs precisely as alleged by Mr Sithambaram based on the evidence presented and the sequence of the presentation of P27.

In regard to complaint (a)

In view of PW3′s admission that he had reviewed his report (P27) before he gave evidence and had also on occasion even referred to same while he was examined and pointedly cross-examined on the contents of P4 and D22 respectively, he had indeed given evidence in an unethical manner and had utterly discredited himself as a witness. It was virtually tantamount to seeing white in his report while saying black. The court views with abhorrence the cavalier manner in which PW3 had held out to the court that what he was seeing was what he was saying, and without disclosing, at that material time, the gross discrepancies in what he saw in P27. P27 states, inter alia, that the three revolvers were found in the black metal cylinder (D22) outside the said house, but yet he testified that same were found in the grey bag (P4) that the accused was holding when apprehended. He had thus intentionally misled the court. As PW9 must have been aware of the contents of P27, his evidence is equally discreditable for having chosen to corroborate and support PW3′s evidence in almost every detail.

If PW3′s testimony in court was the truth and his report (P27) was untrue, it is most incredible that he had not lodged a corrective report containing materials which accords with his oral evidence, contemporaneously with the lodgement of P27. Had a contemporaneous and corrective report been lodged it could and would have been tendered as an exhibit together with P27 by the learned DPPs without running the gauntlet of s 91 of the Act and the authorities aforesaid. Obviously this was not done, as probably there was nothing then to correct.

As P27 is a report lodged on the day of the offence, it is far more likely that all the offending items in the first and second charge as well as the two other revolvers D24A and D25A and a pistol D23A together with all the bullets recovered on that day were found in the black steel cylinder (D22) outside in the house compound and not on the person of the accused. The basic foundation of the prosecution case, that the accused was caught red-handed with P4 containing the offending items while walking away from the house soon after he saw the raiding party arrive, thus crumbles.

Counsel also submitted that the outrageous conduct of the two senior police officers in the present case was evocative of my poignant observation in an earlier case where, in acquitting the accused — after having found that evidence of possession against him had been fabricated — I had said: ‘Even three senior police officers acting in concert and talking in near perfect  [*336] harmony on certain material details in their evidence though — drawing a blank on other pertinent details, as appeared to be the case here — should not, in the interest of justice, be allowed to claim exclusivity or monopoly to the truth without submitting to the court’s overriding duty to examine every detail in their evidence with the view to testing their veracity in conjunction with the rest of the evidence in their totality.’ There was no appeal from this decision. See PP v Yap Boon Chang .

It cannot be gainsaid that it becomes that much more difficult for the court to steer to a just decision in a battle of two versions of lies between liars who had shown scant regard for the truth and the sanctity of the solemn oath that they have taken in court. Surely, in the public interest, a higher standard of conduct is expected of police officers especially when giving sworn evidence in court. In as much as it is in the essential interest of the public that criminals should be caught and put away from their nefarious activities, it is equally essential for law enforcers to demonstrate that they stand on a higher moral plane than the criminals that they sought to put away; they must be mindful of the fact that the law abiding public too would have to deal with them from time to time and vice versa and they cannot function in vacua.

In regard to complaint (b)

It is conduct unseeming and wholly incredible that the learned DPPs, being fully aware of the contents of P27 and keenly appreciating the ramifications of the material piece of oral evidence as it tumbled out from PW3, did not at that point in time and of their own volition, promptly throw in P27 at PW3 and sought to seek clarification from him. This would have avoided their skirmish with s 91 of the Act.

In this case, the learned DPPs had instead held P27 close to their chests; had strongly resisted (though they said, for the record only) the supply of same to counsel; and had sought to get PW3 to clarify by recalling him and producing P27 as an exhibit, only after the court had ordered the supply of a copy of same to counsel.

Even if they were then labouring under a mistaken belief that they had the right to refuse supply of a copy of P27 to counsel, yet their duty to help the court arrive at the truth and to honour truth itself overrides any lingering ill-founded eagerness that they may harbour, to satisfy their superiors that they have robotically objected to the objectable. Surely, the eternal question of which version if any, abides by the truth is solely and exclusively within the domain of judicial determination and not within the purview of counsel or DPPs.

It is appropriate here to remind DPPs as well as counsel to conduct their cases before the courts, with stout confidence in their own wit and grit and command of the facts and the language rather than by guise and guile, unworthy of their role as officers of the court.

The reaction of Encik Kamardin to Mr Sitham’s complaint, that the two main prosecution witnesses had lied through their teeth in a capital charge against his client, was that he had not coached them to testify the way they had in court. While it is to their credit that the proceedings disclosed no  [*337] improprieties by the learned DPPs in this regard, surely their duty to the court (in as much as the bounden duty of defence counsel as officers of the court) would require of them — in the wider interest of justice — more than merely taking heed of the euphemistically expressed caveat not to teach the witness how to tell the truth. Unfortunately, their conduct had given counsel the impression of suppression of truth.

Public interest consideration demands that criminals be apprehended, rightly charged, fairly tried, justly convicted and appropriately sentenced. It is only through an interplay of good law officers, honest but able DPPs, ethical lawyers and competent magistrates and judges that these essential links in the administration of justice and maintenance of law and order is ensured for society; a shortfall in any of these links hardly serves public interest.

I am convinced that we Malaysians are endowed with the correct social ethos and cultural ingredients to display with natural ease, a sense of justice second to none in the world, and without distinction between rank and status, colour or creed, alleged criminal or verified saint. I am sure what has happened in this case is only an aberration.

Considering a state such as Penang which has in recent years seen a rise of crime of violence involving the use of firearms — indeed, recently two lawyers have been shot here within the span of three months — and it is thus in the imperative interest of the public that gun runners be vigilantly apprehended and dealt with with the full force of the law, it is utterly regrettable that the accused should succeed due to the aforesaid gross infirmities in his arrest and prosecution. Obviously the principle adumbrated above is more important than the case itself, and so, with considerable regret, this court has no option but to acquit and discharge the accused on both the charges without calling him to enter upon his defence.

Order accordingly.

LOAD-DATE: June 3, 2003

// <![CDATA[//

The Trial is Fatal as Prosecution Failed To Submit an Omission To Adduce A First Information Report As An Exhibit At The Trial: TEO THIN CHAN & ANOR v. PUBLIC PROSECUTOR HIGH COURT [KUALA LUMPUR] SMITH, J

TEO THIN CHAN & ANOR v. PUBLIC PROSECUTOR
HIGH COURT [KUALA LUMPUR]
SMITH, J
[CRIMINAL APPEAL NO 19 OF 1957]
2 JULY 1957

JUDGMENT

Smith J:

This was a private summons. At the trial the evidence of the complainant consisted of herself and her mother who was very much an interested party. The alleged assault took place in August 1956, and a report was made about that time to the police. In December 1956, a complaint was made to the Magistrate and the case was heard before the learned Magistrate on 29 January 1957. At the trial the complainant failed to produce a certified copy of the report which she made to the police in August 1956, very shortly after the alleged assault.

I agree with learned Counsel for the appellants that the rule in Chin Khing Siong v. R [1952] MLJ 74, applies to the facts of this case. In that case the evidence for the prosecution consisted solely of that of the complainant and Spenser-Wilkinson J held that if the prosecution failed to produce the first report to corroborate the testimony of the complainant (which is possible under s. 157 of the Evidence Ordinance) then the presumption arises under s. 114(g) of the Evidence Ordinance that that report which could have been and had not been produced would, if produced, have been unfavourable to the complainant.

In this case the complainant is not the only witness; she is supported by the evidence of her mother. The mother, however, was very far from being an independent witness and for this reason I consider that it was necessary for the complainant to support her evidence with that of the first report. This first report not having been produced at the close of the prosecution case, the learned Magistrate should not have called upon the two appellants for their defence. I accordingly reversed the finding and sentence and acquitted the appellants.

Appeal allowed.

S56 Fact Judiciallly Noticeable Need Not Be Proved, S57 Facts of Which Court Must Take Judicial Notice (Evidence Act 1950): PEMBANGUNAN MAHA MURNI SDN BHD V JURURUS LADANG SDN BHD [1986] 2 MLJ 30 SUPREME COURT CIVIL SUIT NO 121 OF 1985 SC KUALA LUMPUR

© 2003 LexisNexis Asia (a division of Reed Elsevier (S) Pte Ltd)
The Malayan Law Journal
PEMBANGUNAN MAHA MURNI SDN BHD V JURURUS LADANG SDN BHD
[1986] 2 MLJ 30
SUPREME COURT CIVIL SUIT NO 121 OF 1985
SC KUALA LUMPUR

DECIDED-DATE-1: 17 SEPTEMBER 1985, 28 DECEMBER 1985
LEE HUN HOE CJ (BORNEO), WAN SULEIMAN & SYED AGIL BARAKBAH SCJJ
CATCHWORDS:
Contract – Sale of land – Commission for professional services as broker – Custom – Judicial notice – Interest on amount awarded

Evidence – Judicial notice – Custom – Evidence Act 1950, ss. 57 & 58

HEADNOTES:
In this case the respondent claimed the sum of $ 960,000 from the appellant as the brokerage fee or commission of 3% of the total purchase price of real property in Pahang. The learned trial judge concluded that there was an implied contract to pay the respondent the commission or brokerage as a broker for their involvement in the successful purchase of the land by the appellant. The question arose whether it is customary that such commission was payable at 2% of the purchase price. Respondent’s counsel appeared to have conceded that “3% is not in accordance with the customary payment.” The learned judge therefore awarded commission at the rate of 2%. The appellant appealed and the respondent cross-appealed on the quantum and on the omission to award interest.

Held:
(1)   the learned judge was correct in deciding on the question of fact that
there was an implied contract to pay the respondent or brokerage as a broker;
(2)   in view of the concession by respondent’s counsel, the learned Judge
was correct in awarding commission at 2% but it is clear that he had
inadvertently omitted to award interest on the sum. The cross-appeal should
therefore be allowed, in part.

Cases referred to
Raja Rama Rao v Raja of Pittapur 45 IA 148, 154-155
Tong Lee Hua v Yong Kah Chin [1979] 1 MLJ 233
Tong Lee Hua v Yong Kah Chin [1981] 2 MLJ 1 PC
Bow’s Emporium Ltd v AR Brett [1928] 44 TLR 194
Chew Teng Cheong & Anor v Pang Choon Kong [1981] 1 MLJ 298
Tang Chiok Sing v Lian Fatt Saw Mill Co [1976] 2 MLJ 241

SUPREME COURT

Robert Lazar for the appellant.

JJ Puthucheary ( LR Ratnam with him) for the respondent.

ACTION:

SUPREME COURT

LAWYERS: Robert Lazar for the appellant.

JJ Puthucheary ( LR Ratnam with him) for the respondent.

JUDGMENTBY: SYED AGIL BARAKBAH SCJ

(delivering the Judgment of the Court): In the Commercial Division of the High Court, Kuala Lumpur, the respondent/plaintiff claimed the sum of$ 960,000 from the appellant/defendant as the brokerage fee or commission of 3% of the total purchase price of real property known as Block 8 Keratong in the State of Pahang (Block 8) which the appellant purchased from the registered owner as a result of the alleged professional services of the respondent as broker. The trial Judge gave judgment for the respondent not for the full amount claimed but for the sum of $ 460,000 calculated at 2% of the total purchase price. The appellant being dissatisfied with the said decision, has now appealed. There is also a cross-appeal by the respondent for the inclusion of the award of interest at 8% per annum with effect from March 19, 1981 till the date of judgment which the learned Judge has omitted to award.

Originally the appellant filed six grounds of appeal, but later abandoned the first three grounds  [*31] leaving Grounds 4, 5 and 6 for argument.

The relevant facts as accepted by the learned Judge were that sometime in 1976 Yayasan Islam, Melaka (Yayasan), wanted to purchase landed property. The Chairman of the Yayasan was the then Chief Minister of Melaka (D.W.1). According to the respondent’s General Manager (P.W.1), he was contacted by D.W.1 to observe the condition of an estate known as Tar Ga as Yayasan intended to buy it on a joint venture with Dunlop Company and others. P.W.1 accordingly visited Tar Ga with an official from Dunlop. They also visited a neighbouring estate, Block 8, and on their return P.W.1 informed D.W.1 that Block 8 which was for sale was more suitable than Tar Ga from the point of view of purchase. D.W.1 then requested him to find out the owner and further details regarding Block 8. P.W.1 took about one year to trace and approach the owner’s representative in the person of David Tan, the Assistant Manager of United Malayan Banking Corporation. P.W.1 arranged a meeting to introduce Dunlop’s representative to UMBC and thereafter negotiations were held by the two parties. P.W.1′s involvement ended at that stage.

According to D.W.1, as Chairman of Yayasan, he had a team which advised him before a decision was made to buy Block 8 for Yayasan. On financial matters, he contacted Datuk Salleh, the General Manager of Malaysian International Merchant Banking and in terms of management, Dunlop had agreed to help Yayasan. The team met to consider matters and finally Block 8 was purchased for $ 23 million. The respondent, however, had not been paid their broker’s commission as claimed. D.W.1, on the other hand, was of the opinion that P.W.1 should be paid by Yayasan for the agronomic advice and not for brokerage and a reasonable fee would be between $ 30,000 to $ 40,000. The reason for this was because at the material time the appellant was still not in existence and if there was any contractual relationship it was between Yayasan and the respondent. It seemed that the appellant was set up subsequently as a joint venture company by Yayasan, Dunlop, Melaka SEDC and Melaka Islamic Religious Council, holding a total of 9,999,998 shares with a view to combining and developing estates for economic and commercial purposes. Be that as it may, the trial Judge having perused the evidence at the trial came to the following conclusion:
“… This claim has been brought against Pembangunan Mahamurni Sdn.
Bhd. But, and it is clear that this company had not been formed at the
time of the sale and the efforts of attending to it. It is therefore
clear that this claim is without foundation as how can a person perform
an act before he is born. Nevertheless here we see that DWI
unequivocally stated that the Defendant had adopted all acts and action
that were taken on its behalf earlier by members of the team who bought
Block 8 (page 36). In point of law it is clear that such conduct is
evidence of ratification (see McLean v Dunn 4 Bing 721 page 947
and sections 149, 150 of Contracts Act). And it is also true that DWI
was chairman at the relevant time of the Yayasan IsIam which was the
largest shareholder of the Syarikat Mahamurni. The loudest voice
carries the greatest weight when it comes to decision making in a body.
And DWI had himself confirmed this to be the position in Syarikat Murni
(Page 35).”

The learned Judge also concluded that there was an implied contract to pay the respondent the commission or brokerage as a broker for their involvement in the successful purchase of Block 8 by the appellant. Based on D.W.1′s admission of having requested for the professional services of the respondent to obtain details and to submit a report for the purchase of Block 8 and that such work was to be paid for and considering the efforts made by the respondent of having to find the owner or representative of Block 8 for the purpose of negotiation with the appellant, which subsequently took place, the learned Judge rightly concluded that the respondent was entitled to their commission as brokers. These are purely questions of fact made by the learned Judge. They relate to the three grounds of appeal which as stated earlier were abandoned by the appellants. Ground 6 was not seriously relied on. In the circumstances, as the case stands, the remaining grounds in particular the issue whether judicial notice should be taken by the Court that there exists in this country a custom that a real estate agent is entitled to a commission of the purchase price, become rather academic However, in view of the ground that follows, i.e. whether it is customary that such commission was payable at 2% of the purchase price, we feel it is worthwhile for us to deal with the two grounds, we treat it as one issue.

Now, the general rule is that all facts in issue and relevant facts must be proved by evidence. There are, however, two classes of facts which need not be proved, viz. (a) facts judicially noticed and (b) facts admitted. The exceptions are dealt with by sections 56, 57 and 58 of the Evidence Act 1950 under the title “Facts which need not be proved.” In so far as judicial notice is concerned, the provisions of section 57 subsection (1) makes it mandatory for the Court to take judicial notice of all laws and regulations having the force of law,  [*32] public Acts passed by Parliament, the course of parliamentary proceedings and other matters that are enumerated in subsection (1) (a) to (o) of the section. The list however is not exhaustive since it is impossible to make a really complete list although a long list of facts which the English courts take judicial notice has been prepared. The important point to note is that section 57 does not prohibit the courts from taking judicial notice of other facts not mentioned therein. The matter which the Court will take judicial notice must be the subject of common and general knowledge and its existence or operation is accepted by the public without qualification or contention. The test is that the facts involved must be so sufficiently notorious that it becomes proper to assume its existence without proof. The opponent, however, is not prevented from disputing the matter by adducing evidence if he disputes it. (See Sarkar on Evidence, 13th Edn. paras. 606-609). Judicial knowledge is continually extended to keep pace with the advance of art, science and general knowledge. Subsections (2) and (3) of section 57 provide discretionary power to the Court to resort to the aid of appropriate books or documents of reference in all matters of public history, literature, science or art.

With regard to custom and usage, they are required to be proved in any one of these four ways, i.e., by direct evidence of witnesses which must be positive and not amount to a mere opinion or by a series of particular instances in which it has been acted upon or by proof of similar customs in the same or analogous trades in other localities or when ancient by e.g. the declaration of deceased persons of competent knowledge or other forms of reputation. (See Phipson on Evidence, 13th Edition p. 129).

Judicial notice, however, will be given to any custom or usage which has repeatedly been recognised by the courts and it passes into the law of the land; in other words, if it has been frequently or at all events more than once, proved in the superior court as shown by reported cases. The Court may hold the custom or usage to be introduced into the law without the necessity of proof in each individual case ( Raja Rama Rao v Raja of Pittapur 45 IA 148, 154-155). The opposite party against whom such evidence is tendered may show that the custom or usage does not exist or has not been acted on in particular instances or was a mere practice or has been superseded by a later usage, etc.

Turning back to the present appeal, except for the Federal Court case of Tong Lee Hua v Yong Kah Chin [1979] 1 MLJ 233 which was upheld on appeal by the Privy Council, [1981] 2 MLJ 1 PC we do not think that it has been repeatedly recognised by the courts in this country, superior or otherwise that there exists a custom that a real estate agent is entitled to a commission of the purchase price and that the commission is at 2% thereof. There may, however, be a common practice that estate agents are paid commissions either by the vendor or by the purchaser or sometimes by both. That is a rule which yields to circumstances and depends on negotiations between the parties (See Bow’s Emporium Ltd v AR Brett [1928] 44 TLR 194). In our considered judgment it has not developed into a recognised custom or usage as to entitle it to be judicially noticed. Whether an agent or broker is entitled to any commission depends on the agreement between the parties and has to be proved by positive evidence. Chew Teng Cheong & Anor v Pang Choon Kong [1981] 1 MLJ 298 and Tang Chiok Sing v Lian Fatt Saw Mill Co [1976] 2 MLJ 241, both decided by the Federal Court are two good examples.

On the other hand, the only authority brought to our attention was Tong Lee Hua v. Yong Kah Chin (supra) which deals with an undertaking to pay brokerage in the event of the appellant successfully obtaining the property in question at 61/2% of the sale price. The Federal Court in accepting the said percentage as being payable by way of an expressed agreement stated its view that “the commission of 61/2% of the purchase price is considerably more than the customary purchaser’s commission of, as we understand it, 2%.” On appeal to the Privy Council, the same was quoted by their Lordships in considering whether there was a triable issue as to the validity or otherwise of the sub-option upon which the undertaking was based. No issue of judicial notice was raised and discussed in both courts. The Federal Court appeared to have made a comparison between the percentage of a vendor’s customary commission and a purchaser’s commission which the court understood to be at 2%. The Court, however, allowed the commission at 61/2% as claimed. As we have pointed out earlier, the mere mentioning of the purchaser’s commission as being customary does not by itself render it to be judicially noticed without it being repeatedly recognised by the superior courts.

In the present appeal, the learned Judge allowed the brokerage of 2% to be paid to the respondent instead of 3% as prayed for in the statement of claim, on the request of the respondent’s counsel.  [*33] The latter appeared to have conceded “that 3% is not in accordance with the customary payment.” Had it not been for the counsel’s request, we are quite certain that the learned Judge would have awarded 3%, having decided on the evidence in favour of the respondent. The respondent’s counsel is of course entitled to ask for a lesser amount than that to which his client is entitled having regard to the relationship between solicitor and client and the privileged communication between them. Based on the principles discussed earlier, we hold that judicial notice cannot be applied in this case. In any event, we do not wish to disturb the Judge’s finding for obvious reason. The respondent was satisfied with the award of $ 460,000 at 2% as commission, which we confirm. The appeal is therefore dismissed with costs. The deposit to be paid to the respondent on account of taxed costs.

With regard to the cross-appeal by the respondent, it is clear that the learned Judge has inadvertently omitted to award interest as prayed at 8% per annum from March 19, 1981, i.e., from the time the respondent became entitled to the said sum till the date of judgment. That was also conceded by the appellant’s counsel. We therefore allowed the cross-appeal with costs.

Order accordingly.

SOLICITORS:
Solicitors: Shearn Delamore & Co; Skrine & Co.

LOAD-DATE: June 3, 2003

S93 Exclusion of Evidence To Explain or Amend Ambigious Document (Evidence Act 1950): MAJLIS PERBANDARAN SEBERANG PERAI V TROPILAND SDN BHD [1996] 3 MLJ 94 CIVIL APPEAL NO P 02-11-96 COURT OF APPEAL (KUALA LUMPUR)

3 MLJ 94, *; [1996] 3 MLJ 94

The Malayan Law Journal
MAJLIS PERBANDARAN SEBERANG PERAI V TROPILAND SDN BHD
[1996] 3 MLJ 94
CIVIL APPEAL NO P 02-11-96
COURT OF APPEAL (KUALA LUMPUR)
DECIDED-DATE-1: 22 AUGUST 1996
GOPAL SRI RAM, MOKHTAR SIDIN AND NH CHAN JJCA
CATCHWORDS:
Administrative Law – Exercise of administrative powers – Local authority – Exercise of discretion – Refusal to issue certificate of occupation – Developer challenged refusal on ground of illegality or – Wednesbury unreasonableness – Whether court merely examines decision-making process – Whether court must examine correctness of decision itself on merits

Administrative Law – Exercise of administrative powers – Local authority – Exercise of discretion – Refusal to issue certificate of occupation – Developer challenged refusal on ground of illegality or – Wednesbury unreasonableness – Correctness of local authority’s decision – Trial judge granted declaration that local authority acted ultra vires the law and unreasonably – Trial judge did not appreciate facts of case – Whether declaration granted by judge should be set aside

Administrative Law – Exercise of administrative powers – Local authority – Exercise of discretion – Layout and earthworks plans approved with conditions attached – Developer was to construct moonsoon drain on adjoining state land and perimeter drain on own land – Developer resubmitted layout plan due to alteration done to building – Perimeter drain not drawn into amended plan which was approved by local authority – Squatters living on adjoining state land – Developer completed 80% of moonsoon drain and did not construct perimeter drain – Whether local authority had acted unreasonably in refusing to grant certificate of occupation – Whether court must examine correctness of decision itself on merits or decision-making process

HEADNOTES:
The respondent owned a piece of land in Seberang Prai, and it wanted to construct a 11-storey commercial building on it. It hired an architect who drew up and submitted the earthworks and layout plans to the local authority of Seberang Perai (‘the appellant’) for approval. The layout plan was approved by the appellant with the condition that the respondent had to construct a monsoon drain on the adjoining state land. The earthworks plan, which was approved subsequently, came with the condition that the respondent construct a perimeter drain on the respondent’s land. The respondent then commenced construction. However, the respondent later had to submit an amended layout plan to the appellant, because it wanted to construct a five-storey instead of the original 11-storey building. The perimeter drain was not drawn into the amended layout plan. The appellant approved the amendment. After the building was completed, the respondent applied to the appellant for a certificate of occupation. The appellant refused to issue the certificate, principally on the ground that the respondent had failed to comply with the conditions, ie the respondent had only constructed about 80% of the  [*95] monsoon drain, and did not construct the perimeter drain at all. The respondent took out an originating summons claiming declarations to the effect that the appellant’s refusal to issue the certificate of fitness for the building was unlawful. The respondent contended that it was unreasonable for the appellant to impose the conditions because: (i) there were squatters on the state land, which the respondent lacked locus standi to enter; (ii) the respondent had a legitimate expectation that the state land would be made available to it by the appellant; and (iii) the area of the respondent’s land on which the perimeter drain was to be constructed had to be surrendered to the Jabatan Kerja Raya for the construction of a road. The trial judge took the view that the appellant was acting ultra vires the Town and Country Planning Act 1976 and had committed ‘Wednesbury unreasonableness’ in imposing the conditions. In the case of the perimeter drain, the judge relied on the extrinsic evidence rule housed in ss 91, 92 and 93 of the Evidence Act 1950 to justify his conclusion that the approved amended layout plan and the earthworks plan ought not to be read together. As the perimeter drain was not drawn into the approved amended plan, the judge held that the requirement to construct the perimeter drain was a new requirement as a condition for the issue of the certificate of fitness, and the appellant had thus acted unreasonably. The trial judge accordingly granted declarations that the appellant wasnot entitled in law nor justified in the exercise of discretion to require the respondent as conditions for the issuance of an occupation certificate: (i) to construct a perimeter drain on the land (‘the first declaration’); and (ii) to complete the construction of the monsoon drain on state land with the presence of illegal structures on state land (‘the second declaration’). The judge further ordered damages to be assessed by the senior assistant registrar of the High Court in respect of the loss and damage suffered by the respondent. The appellant appealed.

Held, allowing the appeal:

(1)   Until very recently, it was thought that when the exercise of discretion by a public decision-maker is challenged on the ground of illegality or ‘Wednesbury unreasonableness’, the court merely examines the decision-making process and not the correctness of the decision itself on merits. The fallacy of this approach has now been exposed by the majority decision of the Federal Court in Ramachandran v The Industrial Court of MalaysiaCivil Appeal No 02-13-94, yet unreported (see p 105B-C).

(2)   It follows that when the exercise of discretion by a public body, such as the appellant, is challenged, a court must examine the facts and determine whether the decision arrived at is reasonable. If it is, then, it is safe from attack. If it is not, then,  [*96] the appropriate remedy may be given. In the present case, the judge concluded that the appellant had acted ultra vires and unreasonably. In the light of the law in its present state, his decision really turns upon his appreciation of the facts of the case (see p 106C-D).

(3)   Although the High Court had jurisdiction to grant the first declaration in regard to the monsoon drain, it is equally settled that the remedy is discretionary in nature (see p 107H-I); Faber Merlin (M) Sdn Bhd & Ors v Lye Thai Sang & Anor [1985] 2 MLJ 380 and Arab-Malaysian Credit Bhd v Tan Seang Meng [1995] 1 MLJ 525 followed.

(4)   The judge ought to have borne in mind that he was being moved for a remedy that was essentially discretionary in nature. He ought to have refused it in the light of the facts made known to him in the affidavits (see p 107F).

(5)   In this appeal, the condition relating to the construction of the monsoon drain was there from the very beginning, and was not subsequently imposed upon the respondent. The respondent not only remained silent for three years after the imposition of the condition, but also completed 80% of the work before taking objection. In these circumstances, the doctrine of legitimate expectation has no application whatsoever to the facts of the present appeal. There was nothing unreasonable, in the circumstances of this case, in the appellant’s insistence that the respondent fulfil the conditions subject to which planning permission was granted. It followed that the judge was wrong in granting the first declaration (see p 109B-D); Sykt Bekerjasama-Sama Serbaguna Sungai Gelugor Dengan Tanggungan Bhd v Majlis Perbandaran Pulau Pinang [1996] 2 MLJ 697 distinguished.

(6)   There may be several pieces of written law, both Acts of Parliament and subsidiary legislation, that regulate the development of land and the construction of or alteration to buildings. Anyone proposing to engage in land development must observe the provisions of all the written laws that regulate this form of human activity. It was, therefore, quite wrong for the judge to proceed upon the basis that compliance with the conditions attaching to the planning permission granted under the Town and Country Planning Act 1976 was quite sufficient. Regard must also be had to the equally compelling provisions of the Street, Drainage and Building Act 1974 which govern the carrying out of earthworks (see pp 111G-I and 112A).

(7)   The judge made the assumption that all the necessary earthworks had been completed at the date when the respondent’s amended plan was approved. As a matter of pure fact, the assumption made was wrong because the perimeter drain, which was very much a part of the earthworks,  [*97] was never constructed. It followed that the reasoning of the judge lacked the necessary factual basis and his conclusion upon the point was a non sequitur (see p 112G).

(8)   The authorities referred to and relied upon by the judge that dealt with the extrinsic evidence rule deal with bilateral instruments in private law. The judge failed to realize that he was dealing with a public law case and not a construction summons taken out to interpret the clauses in a private document. That led him to the error into which he fell (see p 113A-D).

(9)   In the present case, the original plan for an 11-storey building, the earthworks plan and the amended plan for a five-storey building were all related to the same project. For that reason, they must be read together. The judge was wrong when he said the opposite. It followed that it was no answer for the respondent to say that it had met with all the conditions appearing on the approved amended layout plan. It must also comply with the conditions that appear on the earthworks plan. The condition about the perimeter drain might not appear on the approved amended layout plan, but it appeared on the earthworks plan. That was sufficient. The judge was wrong in treating it as a condition that was imposed later by the appellants. Acting upon an erroneous fact pattern, he applied the dictum of Mohd Dzaiddin J in Rethina Development. That was certainly a misdirection. It had occasioned a miscarriage of justice in this case (see p 113E-G).

(10)   The last point made by the judge was that the condition in question gives rise to an absurdity because the perimeter drain, if constructed, would run along the centre of a road to be constructed by the respondent and JKR. However, having read with care the three plans earlier mentioned, this court was satisfied that the absurdity referred to by the judge did not exist (see p 113H-I).

(11)   It could not be said that the appellant was acting unreasonably in withholding the certificate of fitness. That the law requires them to act as they have done is borne out by by-law 25(1)(b) of the Uniform Building By-Laws 1984 (being subsidiary legislation made under the Street, Drainage and Building Act 1974) which provides, inter alia, that certificate of fitness for occupation of a building shall be given when all essential services, including drains, have been provided. For these reasons, the judge was wrong in granting the respondent the second declaration (see p 114A-C).

(12)   The respondent did not ask for an award of damages, but merely an assessment in its summons. This was altogether wrong. Before an inquiry into or an assessment of damages may take place, there must be a judgment awarding damages, for it is  [*98] only under a judgment awarding damages that an assessment or inquiry may take place (see p 114D-E).

(13)   In any event, it was sufficient to state that once the declarations were set aside, the order for assessment fell to the ground automatically (see p 114F).

(14)   The respondent’s case alleged ‘Wednesbury unreasonableness’, not malice. Yet, the judge held that the appellant had acted in bad faith and out of malice. Having examined the relevant material in the record provided, the court was entirely satisfied that there was absent any material to support this finding (see p 114G).

Bahasa Malaysia summary

Penentang memiliki sebidang tanah di Seberang Prai, dan ia berhasrat mendirikan sebuah bangunan perdagangan 11 tingkat atas tanah tersebut. Ia menggaji seorang arkitek yang melukis dan mengemukakan pelan-pelan kerja tanah dan susun atur kepada pihak berkuasa tempatan Seberang Perai (‘perayu’) untuk kelulusan. Pelan susun atur telah diluluskan oleh perayu dengan syarat bahawa penentang harus membina sebuah parit monsun atas tanah negeri yang bersempadanan. Kelulusan pelan kerja tanah pada kemudiannya disusuli dengan syarat agar penentang membina sebuah parit perimeter atas tanah penentang. Penentang kemudiannya memulakan kerja pembinaan. Walau bagaimanapun, penentang kemudiannya terpaksa mengemukakan suatu pelan susun atur yang terpinda kepada perayu, sebab ia ingin membina sebuah bangunan lima tingkat dan bukan bangunan 11 tingkat yang asal. Parit perimeter tidak dimasukkan dalam pelan yang dipinda. Perayu meluluskan pindaan itu. Selepas bangunan itu selesai didirikan, penentang telah memohon kepada perayu untuk suatu sijil penghunian. Perayu enggan mengeluarkan sijil itu, terutamanya atas alasan bahawa penentang telah gagal mematuhi syarat-syarat, iaitu penentang hanya telah membina kira-kira 80% daripada parit monsun, dan tidak membina parit perimeter sama sekali. Penentang mengeluarkan suatu saman pemula menuntut perisytiharan bahawa penolakan perayu terhadap pengeluaran perakuan kelayakan bagi bangunan itu menyalahi undang-undang. Penentang berhujah bahawa adalah tidak munasabah bagi perayu mengenakan syarat-syarat sebab: (i) terdapatnya setinggan atas tanah negeri, dan penentang tidak mempunyai locus standi untuk masuk; (ii) penentang mempunyai jangkaan sah bahawa tanah negeri akan disediakan kepadanya oleh perayu; dan (iii) kawasan tanah penentang atas mana parit perimeter akan dibina harus diserah kepada Jabatan Kerja Raya untuk pembinaan jalan. Hakim perbicaraan berpandangan bahawa perayu telah bertindak ultra vires Akta Perancangan Bandar dan Desa 1976 dan telah melakukan ‘ketidakmunasab ahan Wednesbury’ dalam mengenakan syarat-syarat. Dalam kes parit  [*99] perimeter pula, hakim telah bergantung kepada rukun keterangan ekstrinsik yang dirangkumi oleh ss 91, 92 dan 93 Akta Keterangan 1950 bagi memberi justifikasi kepada kesimpulan beliau bahawa pelan susun atur terpinda yang diluluskan dan pelan kerja tanah tidak patut dibaca bersama. Oleh kerana parit perimeter tidak dilukis dalam pelan terpinda yang diluluskan, hakim membuat keputusan bahawa keperluan untuk membina parit perimeter adalah satu keperluan baru sebagai satu syarat untuk pengeluaran perakuan kelayakan, dan dengan itu perayu telah bertindak secara tidak munasabah. Ekoran itu, hakim perbicaraan memberikan perisytiharan bahawa perayu tidak berhak dalam undang-undang mahupun mempunyai justifikasi dalam pelaksanaan budi bicara untuk menghendaki penentang, sebagai syarat untuk pengeluaran suatu perakuan penghunian, untuk: (i) membina sebuah parit perimeter atas tanah tersebut (‘perisytiharan pertama’); dan (ii) untuk menyempurnakan pembinaan parit monsun atas tanah negeri walaupun terdapat struktur yang menyalahi undang-undang atas tanah negeri (‘perisytiharan kedua’). Hakim seterusnya membuat perintah supaya ganti rugi ditaksir oleh penolong kanan pendaftar Mahkamah Tinggi berhubung dengan kerugian dan kerosakan yang dialami oleh penentang. Perayu membuat rayuan.

Diputuskan, membenarkan rayuan:

(1)   Sehingga baru-baru ini, ia dianggap bahawa apabila pelaksanaan budi bicara oleh badan membuat keputusan awam dicabar atas alasan menyalahi undang-undang atau ‘ketidakmunasabahan Wednesbury’, mahkamah hanya memeriksa proses membuat keputusan dan bukan ketepatan keputusan sendiri atas merit. Falasi pendekatan ini kini telah dihancurkan oleh keputusan majoriti Mahkamah Persekutuan dalam Ramachandran v The Industrial Court of Malaysia Rayuan Sivil No 02-13-94, belum dilaporkan (lihat ms 105B-C).

(2)   Ini bermakna bahawa apabila pelaksanaan budi bicara oleh badan awam, misalnya perayu, dicabar, sesebuah mahkamah mestilah meneliti fakta-fakta dan menentukan sama ada atau tidak keputusan yang dibuat adalah munasabah. Jika ianya munasabah, maka ianya selamat daripada kritikan. Jika tidak, maka remedi yang wajar boleh diberikan. Dalam kes ini, hakim telah membuat kesimpulan bahawa perayu telah bertindak ultra vires dan dalam cara yang tidak munasabah. Memandangkan undang-undang dalam keadaan sekarang, keputusan beliau benar-benar bertentangan dengan ulasan beliau atas fakta kes (lihat ms 106C-D).

(3)   Walaupun Mahkamah Tinggi mempunyai bidang kuasa untuk memberi perisytiharan pertama berkaitan dengan parit monsun, adalah mantap bahawa remedi itu adalah mengikut budi bicara (lihat ms 107H-I); Faber Merlin (M) Sdn Bhd & Ors v Lye  [*100] Thai Sang & Anor [1985] 2 MLJ 380 dan Arab-Malaysian Credit Bhd v Tan Seang Meng [1995] 1 MLJ 525 diikut.

(4)   Hakim sepatutnya mengingati bahawa beliau diminta untuk suatu remedi yang pada dasarnya mengikut budi bicara. Beliau sepatutnya menolaknya memandangkan fakta-fakta yang dikemukakan padanya dalam afidavit-afidavit (lihat ms 107F).

(5)   Dalam rayuan ini, syarat yang berhubung dengan pembinaan parit monsun memang ada dari permulaan, dan bukanlah dikenakan kemudiannya atas penentang. Penentang bukan sahaja mendiamkan diri selama tiga tahun selepas pengenaan syarat, malah juga telah menyempurnakan 80% kerja sebelum membuat bantahan. Dalam keadaan ini, doktrin jangkaan sah tidak terpakai sama sekali terhadap fakta-fakta rayuan ini. Tiada apa-apa yang tidak munasabah, dalam keadaan kes ini, dalam tegasan perayu agar penentang memenuhi syarat-syarat tertakluk kepada pemberian kebenaran perancangan. Ini bermakna bahawa hakim adalah salah dalam memberikan perisytiharan pertama (lihat ms 109B-D); Sykt Bekerjasama-Sama Serbaguna Sungai Gelugor Dengan Tanggungan Bhd v Majlis Perbandaran Pulau Pinang [1996] 2 MLJ 697 dibeza.

(6)   Mungkin terdapat beberapa undang-undang bertulis, termasuk kedua-dua Akta Parlimen dan perundangan subsidiari, yang mengawal pemajuan tanah dan pembinaan atau perubahan kepada bangunan. Sesiapa yang bercadang melibatkan diri dalam pemajuan tanah mesti mematuhi peruntukan semua undang-undang bertulis yang mengawal bentuk aktiviti manusia ini. Oleh yang demikian, adalah salah untuk hakim membuat keputusan atas dasar bahawa pematuhan syarat-syarat yang disertai bersama kebenaran perancangan yang diberi di bawah Akta Perancangan Bandar dan Desa 1976 adalah agak memadai. Perhatian juga mestilah diberikan kepada peruntukan dalam Akta Jalan, Parit dan Bangunan 1974 yang menguasai penjalanan kerja tanah (lihat ms 111G-I dan 112A).

(7)   Hakim telah membuat tanggapan bahawa kesemua kerja tanah yang perlu telah diselesaikan pada tarikh apabila pelan penentang yang terpinda diluluskan. Secara kebetulan, tanggapan yang dibuat itu adalah salah sebab parit perimeter, yang merupakan sebahagian daripada kerja tanah, tidak pernah dibina. Ekoran itu, pertimbangan hakim kekurangan asas faktual yang perlu dan kesimpulan beliau atas perkara itu adalah suatu non sequitur (lihat ms 112G).

(8)   Autoriti yang dirujuk oleh hakim dan yang hakim tersebut bergantung kepada, membincangkan rukun keterangan ekstrinsik yang berkenaan dengan suratcara dwipihak dalam undang-undang persendirian. Hakim gagal menyedari bahawa beliau sedang mengendalikan suatu kes undang-undang awam dan bukannya suatu saman pentafsiran yang diambil bagi  [*101] mentafsir fasal-fasal dalam dokumen peribadi. Itulah yang mengakibatkan kesilapan hakim (lihat ms 113A-D).

(9)   Dalam kes ini, pelan asal untuk sebuah bangunan 11 tingkat, pelan kerja tanah dan pelan yang dipinda untuk bangunan lima tingkat semuanya berhubung dengan projek yang sama. Atas alasan itu, mereka haruslah dibaca bersama. Hakim adalah salah apabila beliau mengatakan yang sebaliknya. Ini bermakna bahawa penentang tidak boleh mengatakan bahawa ia telah mematuhi semua syarat atas pelan susun atur terpinda yang diluluskan. Ia juga mesti mematuhi syarat-syarat atas pelan kerja tanah. Syarat mengenai parit perimeter mungkin tidak tertulis atas pelan susun atur terpinda yang diluluskan, tetapi ia muncul atas pelan kerja tanah. Ini sudah mencukupi. Hakim adalah salah dalam menganggapnya sebagai suatu syarat yang dikenakan pada kemudiannya oleh perayu. Hakim telah bertindak atas pola fakta yang salah dan memakai dictum Mohd Dzaiddin H dalam Rethina Development. Itu sesungguhnya merupakan suatu salah arah. Ia telah mengakibatkan suatu ketidakadilan dalam kes ini (lihat ms 113E-G).

(10)   Pendapat terakhir yang telah diberikan oleh hakim ialah bahawa syarat yang berkenaan menimbulkan suatu keadaan yang tidak munasabah sebab parit perimeter, jika dibina, akan bersampingan dengan bahagian tengah sebatang jalan yang akan dibina oleh penentang dan JKR. Namun demikian, selepas membaca ketiga-tiga pelan yang disebut tadi dengan teliti, mahkamah berpuas hati bahawa keadaan tidak munasabah yang dirujuk oleh hakim tidak wujud (lihat ms 113H-I).

(11)   Tidak boleh dikatakan bahawa perayu bertindak secara tidak munasabah dalam menahan perakuan kelayakan. Undang-undang yang menghendaki mereka bertindak seperti yang telah berlaku adalah tersirat dalam undang-undang kecil 25(1)(b) Undang-Undang Kecil Bangunan Seragam 1984 (yang merupakan perundangan subsidiari yang dibuat di bawah Akta Jalan, Parit dan Bangunan 1974) yang memperuntukkan, antara lain, bahawa perakuan kelayakan untuk penghunian sesebuah bangunan harus diberikan apabila semua kemudahan asas, termasuk parit, telah pun disediakan. Atas alasan-alasan ini, hakim adalah salah dalam memberikan perisytiharan kedua kepada penentang (lihat ms 114A-C).

(12)   Penentang tidak meminta suatu award ganti rugi, tetapi suatu taksiran sahaja dalam samannya. Ini adalah salah pada keseluruhannya. Sebelum siasatan ke dalam atau taksiran ganti rugi boleh berlaku, mestilah terdapat suatu penghakiman yang mengawardkan ganti rugi, kerana suatu taksiran atau siasatan hanya boleh berlaku di bawah suatu penghakiman yang mengawardkan ganti rugi (lihat ms 114D-E).

[*102]

(13)   Bagaimanapun, adalah memadai untuk menyatakan bahawa sebaik sahaja perisytiharan diketepikan, perintah untuk taksiran secara automatik tidak boleh dilaksanakan (lihat ms 114F).

(14)   Kes penentang mendakwa ‘ketidakmunasabahan Wednesbury’, bukan niat jahat. Namun begitu, hakim telah membuat keputusan bahawa perayu telah bertindak atas niat jahat. Selepas meneliti material yang relevan dalam rekod yang disediakan, mahkamah berpuas hati bahawa tidak terdapat sebarang material yang menyokong pendapat ini (lihat ms p 114G).

For cases on exercise exercise of administrative powers, see
1 Mallal’s Digest (4th Ed, 1995 Reissue) paras 1-50.

Arab-Malaysian Credit Bhd v Tan Seang Meng [1995] 1 MLJ 525
Associated Provincial Picture Houses Ltd v Wednesbury Corp [1948] 1 KB 223
Council Of Civil Service Unions & Ors v Minister for the Civil Service [1985] AC 374
Faber Merlin (M) Sdn Bhd & Ors v Lye Thai Sang & Anor [1985] 2 MLJ 380
Goh Eng Wah v Yap Phooi Yin & Anor [1985] 1 MLJ 329
Keng Huat Film Co Sdn Bhd v Makhanlall (Properties) Pte Ltd [1984] 1 MLJ 243
Pengarah Tanah dan Galian Wilayah Persekutuan v Sri Lempah Enterprise Sdn Bhd [1979] 1 MLJ 135
Ramachandran v The Industrial Court of Malaysia Civil Appeal 02-13-94 (Civil Appeal No 02-13-94) (unreported)
Sykt Bekerjasama-Sama Serbaguna Sungai Gelugor Dengan Tanggungan Bhd v Majlis Perbandaran Pulau Pinang [1996] 2 MLJ 697

Evidence Act 1950 ss 91, 92, 93
Street, Drainage and Building Act 1974 s 70A(1), (2), (3)
Town and Country Planning Act 1976
Uniform Building By-Laws 1984

Originating Summons No 24-718-93 (High Court, Pulau Pinang)
Zaki Tun Azmi (CKV Devan, K Sarasvathy and Vishnu Kumar with him) (Devan Hussin & Co) for the appellant.
JA Yeoh Christina Siew with him) (Shearn Delamore & Co) for the respondent.  [*103]

JUDGMENTBY: GOPAL SRI RAM JCA

GOPAL SRI RAM JCA (delivering the judgment of the court): The respondent owns a piece of land in Seberang Prai which it wanted to develop. It wanted to construct a commercial building on the land. It was to be an 11-storey building with a supermarket. It hired an architect who drew up plans. Those plans had to be approved by the appellant which is the local authority in, and for, Seberang Perai. There were two plans to start with. One is what is generally called the layout plan; the other had to do with the earthworks.

Under the law, the respondent could not lawfully commence building work of any sort — including earthwork — without the approval of the appellant. It waited for the approvals to come. Eventually they came. The layout plan was approved by the appellant on 30 November 1984, while the earthworks plan was approved on 19 July 1986. The approvals came with conditions. One of the conditions required the respondent to construct or upgrade a monsoon drain on the land adjoining the respondent’s property. That land belonged to the state. There were squatters on it. Constructing the monsoon drain meant having to deal with these squatters. Another condition was that the respondent had to construct a perimeter drain on its land.

The respondent commenced construction. When the third floor of the building was under construction, it had a change of heart. It did not want to have 11 storeys. It proposed to have a five-storeyed building. So it got its architect to prepare and submit an amendment to the original plan. That was approved as well, once again with conditions. There was a requirement to submit a fresh earthworks plan to the engineering department. What the appellant obviously wanted was either compliance with the conditions in the original earthworks plan or a new proposal on the drains.

The respondent constructed about 80% of the monsoon drain, dealing with the squatters as it went along. Then it ran into brick wall, as it were, with one of the squatters who, it appears, was a little adamant. At that point, the respondent stopped work on the monsoon drain.

The respondent did not construct the perimeter drain. Mr Yeoh, who appeared for the respondent on the appeal, has told us that there are good reasons for this. He has drawn our attention to the several plans and the endorsements on them. According to him, the area of the respondent’s land on which the perimeter drains were to be constructed had to be surrendered to the Jabatan Kerja Raya (the Public Works Department), or ‘JKR’ for short, for the construction of a road. We will deal with this aspect of the case later.

Having completed the building, the respondent applied to the appellant for a certificate of occupation so that it could put the building to use. But the appellant refused to issue such a certificate principally on the ground that the respondent had failed to comply with the conditions  [*104] relating to the construction of the perimeter and the monsoon drains. Thereupon, the respondent took out an originating summons in which it claimed several declarations, the effect of which was to declare as unlawful the appellant’s refusal to issue the certificate of fitness for the building in question.

When the matter came on for hearing before Vincent Ng J, the respondent withdrew the first two declarations claimed in its summons. After hearing arguments, the learned judge granted the respondent the following relief:

(i)   a declaration that the defendants are not entitled in law nor justified in the exercise of discretion to require the plaintiffs, as a condition for the issuance of an occupation certificate in respect of a block of five- storey building (hereinafter referred to as ‘the said building’) on the plaintiffs’ land known as Lots 368, 369 and 370 Mukim 15 Jalan Telaga Ayer, Butterworth (hereinafter referred to as ‘the said land’), to construct a perimeter drain along the eastern and southern boundary of the said land;

(ii)   a declaration that the defendants are not entitled in law nor justified in the exercise of discretion to require the plaintiffs, as a condition for the issuance of an occupation certificate in respect of the said building on the said land, to complete the construction of the monsoon drain on state land notwithstanding the presence of unauthorized and/or illegal structures on state land; and

(iii)   damages to be assessed by the senior assistant registrar of the High Court in respect of the loss and damage suffered by the plaintiffs on account of the defendants’ failure and/or refusal to date to issue an occupation certificate in respect of the said building on the said land.

He also awarded the respondent the costs of the action.

The judge granted the declarations in question because he thought that the appellant was acting outside the law and unreasonably in imposing the conditions about the perimeter and monsoon drains. In doing so, he relied on the Delphic pronouncement by Lord Greene MR in Associated Provincial Picture Houses Ltd v Wednesbury Corp [1948] 1 KB 223. The proposition which that case established is that a public decision-maker on whom statute confers a discretion must exercise it reasonably. It has been applied in numerous cases throughout the commonwealth. We too have incorporated it as part of our common law. See Pengarah Tanah dan Galian Wilayah Persekutuan v Sri Lempah Enterprise Sdn Bhd [1979] 1 MLJ 135 at pp 146 and 148. The principle is so well established that, as a ground of challenge, it has come to be known as ‘Wednesbury unreasonableness’.

In Council Of Civil Service Unions & Ors v Minister for the Civil Service [1985] AC 374, Lord Diplock listed four grounds on which a decision in  [*105] public law may be challenged. They are, he said, ‘illegality’, ‘irrationality’, ‘procedural impropriety’ and ‘proportionality’. He placed ‘Wednesbury unreasonableness’ within the ‘irrationality’ category.

Until very recently, it was thought that when the exercise of discretion by a public decision-maker is challenged on the ground of illegality or ‘Wednesbury unreasonableness’, the court merely examines the decision- making process and not the correctness of the decision itself on merits. The fallacy of this approach has now been exposed by the majority decision of the Federal Court in Ramachandran v The Industrial Court of Malaysia Appeal No 02-13-94, yet unreported. It is a landmark decision. It stands as a beacon lighting the path of future development in the field of public law. Edgar Joseph Jr FCJ, who delivered one of the majority judgments, exploded the theory that judicial review is always concerned only with the decision-making process and never with the decision itself. This is what he said (at pp 8-11 of the transcript):
Lord Diplock’s first ground for challenge — namely, illegality
involves insisting that the authority or body whose decision is being
impugned has kept strictly within the perimeters of their powers. A
good example of this is the case of Westminster City Council v Great
Portland Estates plc
[1985] AC 661, an ultra vires case involving
judicial construction of the Town and Country Planning Act 1971. The
question for decision was whether the Act permitted the relevant
authorities, by resort to their development plans, to support the
retention of traditional industries or was the ambit of the Act such as
to permit only ‘land use’ aims to be pursued? It was held that ‘the
character of the use of the land not the particular purpose of a
particular occupier’ was the concern of planning, and therefore, the
authority could not seek to favour any particular occupant or class of
occupant. By thus confining the relevant authority strictly to the four
walls of the powers conferred upon them by the Act, the court was
involved in the exercise of reviewing the impugned decision for
substance and not just process.
Lord Diplock’s second ground for challenge — namely, irrationality
– recognizes a different route whereby the substance of a decision
may be reviewed by the courts. By this means, Lord Diplock made it
clear that despite being legal — that is to say, within the powers
conferred — a decision may nevertheless be struck down for being
contrary to substantive principles. In the words of Lord Diplock:
… a decision which is so outrageous in its defiance of logic or of
accepted moral standards that no sensible person who had applied his
mind to the question to be decided could have arrived at it.
In this regard, the case of Hall & Co Ltd v Storeham-By-Sea UDC
[1964] 1 All ER 1, a planning case, affords a good illustration of
how the courts in the United Kingdom do in practice review a decision
for substance even though it may comply with the legislative
scheme. The defendant had granted the plaintiffs planning permission
subject to conditions that required them to construct a road on their
land and dedicate its use to the public. No compensation was payable to
them for the loss of the land to be used for the  [*106] road.
Under town and country planning law, a local authority may, in granting
planning permission, impose such conditions as it may think fit. The
court struck down the condition, one of the grounds being that the
condition was void for unreasonableness. On the one hand, while viewed
from a traffic engineering point of view, the defendant’s object was
‘perfectly reasonable’, but on the other hand, the course they adopted
was ‘utterly unreasonable’. In effect, the court had examined the
decision for substance, and held that the imposition of the
condition was an abuse of power and unlawful. It is implicit in this
decision that the court was indirectly enforcing the fundamental civil
right to be compensated adequately for property compulsorily acquired.

It follows that when the exercise of discretion by a public body, such as the appellant, is challenged, a court is entitled to — indeed it must — examine the facts and determine whether the decision arrived at is reasonable in the sense described by Edgar Joseph Jr FCJ in the foregoing passage. If it is, then, it is safe from attack. If it is not, then, the appropriate remedy may be given.

In the present case, the learned judge, as earlier observed, concluded that the appellant had acted ultra vires and unreasonably. In the light of the law in its present state, his decision really turns upon his appreciation of the facts of the case.

Against the judge’s decision, the appellant local authority has now appealed to us. Dato Zaki, who appeared for it, has argued the appeal with his usual ability. He has taken us through the relevant affidavits and plans to show that the learned judge came to the conclusion that the appellant had acted unreasonably because he had not fully appreciated the evidence before him. In short, there was no judicial appreciation of the facts. Dato Zaki has demonstrated beyond any doubt that the conditions about which the respondent complains are not new ones imposed mid-stream at the whims and fancies of the appellant. They were there all along and the respondent took on the development of its land fully cognizant of the ramifications that were entailed. In a nutshell, the appellants had not acted either high-handedly or unreasonably. And there was certainly no bad faith on their part.

We think that there is merit in the arguments presented by Dato Zaki. We will deal with the two points of essential contention between the parties.

In the case of the monsoon drain, there is abundant evidence that the respondent knew that it had to be constructed on state land. It knew, or must be taken to know, of the presence of squatters. Yet it did not complain about the condition at the time it was imposed. It did not appeal against the imposition of the condition. If its appeal had been unsuccessful, it may have moved for certiorari to quash the condition. But, as we have  [*107] already observed, it did none of these things. And there is a reason for its earlier reticence. Locating the monsoon drain on state land meant that the respondent had the use of all its land. Had the monsoon drain been relocated on the respondent’s land, it would have meant having to give up a portion of its land. That is probably why it initially accepted the condition on the layout plan.

Mr Yeoh, who appeared for the respondent, has said in answer that the condition imposed by the appellant did not require his client to construct or upgrade the monsoon drain irrespective of the presence of squatters. Had the appellant imposed such a condition on the layout plan, said Mr Yeoh, the respondent would have lodged an appeal for the removal of the condition. He argued that it is unreasonable of the appellants to expect the respondent to enter upon state land and deal with squatters when the respondent lacks locus standi to do so.

The short answer to Mr Yeoh’s argument is that, the condition requiring the construction or the upgrading of the monsoon drain cannot, and should not, be read in vacuo . It must be read in the light of the circumstances prevailing at and about the site at which the the respondent proposed to construct its building. At the time the condition was indorsed on the layout plan, the respondent knew, or must be taken to have known, of the status of the land on which the monsoon drain was required to be constructed. The respondent must have been aware that state land was involved. It must have known about the squatters. But it did nothing for three years. We do not think it ought to be heard to complain now. The judge ought to have borne in mind that he was being moved for a remedy that was essentially discretionary in nature. He ought to have refused it in the light of the facts made known to him in the affidavits.

When this point was put to Mr Yeoh, he countered with the argument that the court had jurisdiction to grant the first declaration in regard to the monsoon drain. He referred us to the earlier proceedings in this case. Azmel J had dismissed the action for want of jurisdiciton. The respondent appealed to the (then) Supreme Court which ruled that the High Court did have jurisdiction to grant the declarations sought. Mr Yeoh submitted that the matter was now closed and the issue of the High Court’s jurisdiction could not now be re-agitated.

With respect, we are unable to accept Mr Yeoh’s argument. It overlooks the vital difference between jurisdiction and discretion in the context of declaratory relief. No doubt that the High Court has jurisdiction to grant such relief. But it is equally settled that the remedy is discretionary in nature. A plaintiff who establishes his right may nevertheless be refused declaratory relief in certain circumstances, eg where he is guilty of laches or other unconscionable conduct. See Faber Merlin (M) Sdn Bhd & Ors v Lye Thai Sang & Anor [1985] 2 MLJ 380 at p 384.

[*108]

The answer to Mr Yeoh’s argument, we believe, lies in the following passage of the judgment of this court in Arab-Malaysian Credit Bhd v Tan Seang Meng [1995] 1 MLJ 525 (at p 534):
Now, it is one thing to say that a court has no power to make an order
or to grant relief and quite a different thing to say that a particular
order or relief will not, in accordance with settled principles, be
granted. A refusal in such circumstances is in fact an exercise of
jurisdiction and not a denial of it. This important distinction of
principle is well brought out by the following passage in the advice of
the Privy Council delivered by Lord Diplock in Rediffusion (Hong
Kong) Ltd v A-G of Hong Kong
[1970] AC 1136; [1970] 2 WLR 1264
which was applied by our Federal Court in Dato Menteri Othman bin
Baginda & Anor v Dato Ombi Syed Alwi bin Syed Idrus
[1981] 1 MLJ 29
:

When considering an action claiming relief in the form of discretionary remedies only it is thus important to distinguish between the jurisdiction of the court to entertain the action at all, ie to embark upon the inquiry whether facts exist which would entitle the court to grant the relief claimed, and a settled practice of the court to exercise its discretion by withholding the relief if the facts found to exist disclose a particular kind of factual situation. The application of a discretion to refuse relief even though this may be pursuant to a settled practice is an exercise of jurisdiction, not a denial of it.
Although those words were spoken in the context of declaratory relief,
they are of universal application …

Mr Yeoh has also argued that the respondent had a legitimate expectation that the state land on which the monsoon drain was to be constructed would be made available to it by the appellant. Counsel conceded that he did not raise or argue this point before the High Court. It is, therefore, an entirely new point. Had it been raised, the appellant may have wanted to put in some evidence on it. It cannot do so now. Mr Yeoh, however, argued that no further evidence is necessary. We are not certain that he is right in his argument. But we will assume that he is. Yet the point does not avail his client at all.

This is how counsel put his argument. Since the state land was not made available, the respondent was no longer under an obligation to fulfill the condition in question. In support of his submission, Mr Yeoh relied on the decision of this court in Sykt Bekerjasama-Sama Serbaguna Sungai Gelugor Dengan Tanggungan Bhd v Majlis Perbandaran Pulau Pinang [1996] 2 MLJ 697 , where it was held that the grant of planning permission creates a substantive right through the operation of the doctrine of legitimate expectation.

In our judgment, the present case bears no resemblance to the facts of Sungai Gelugor‘s case. There, the local authority, having granted planning permission that was valid for a year, granted an extension of that permission  [*109] subject to additional conditions. This court held that the Sungai Gelugor Co-operative Society, as the developer, had a legitimate expectation that the planning permission would be extended upon the same conditions as those imposed upon its grant.

In the appeal now before us, the condition relating to the construction or upgrading of the monsoon drain was there from the very beginning. It was not subsequently imposed upon the respondent as was done in Sungai Gelugor . As we earlier observed, the respondent not only remained silent for three years after the imposition of the condition, but also completed 80% of the work before taking objection. In these circumstances, the doctrine of legitimate expectation has no application whatsoever to the facts of the present appeal.

The learned judge has said, in his judgment, that it was unreasonable of the appellant to insist upon the compliance of the monsoon drain condition before it will issue the certificate of fitness for occupation. This argument is slightly different from the one advanced by Mr Yeoh before us, and to which we have addressed ourselves thus far. We do not agree with the judge’s conclusion. In our view, there was nothing unreasonable, in the circumstances of this case, in the appellant’s insistence that the respondent fulfill the conditions subject to which planning permission was granted. It follows that the judge was wrong in granting the first declaration.

We now turn to the second declaration. It has to do with the perimeter drain. In order to deal with this part of the case, it is necessary to recall some of the salient facts.

The requirement that the respondent construct a perimeter drain on its land did not appear as part of the planning permission. It appeared in the earthworks plan. The learned judge held that that was not good enough. This is what he actually said about it:
After careful consideration it is my view that it is wholly
impermissible in law and without any justification in fact for this
court to hold that the requirement in CAB 2 [the earthworks plan]
pertaining to the construction of a perimeter drain should be read into
or in conjunction with CAB 3 [the amended plan]. My reasons are as
follows:
(a)   CAB 2 — pertaining to earthworks operations, which is an
entirely different stage in the development process of a land –
was approved about two years before CAB 3 and under an altogether
different legislation being the Street, Drainage and Building Act
1974. Due to a lapse of such a long period between the respective
approvals of CAB 2 and CAB 3, it would not be unreasonable for
the plaintiffs to presume that CAB 2 had been deemed to be fully
complied with upon approval of CAB 3 and that CAB 3 was intended
to be the final and sole reference planning permission under the
Act. Alternatively, it would appear that the very approval of the
layout plan (CAB 3) presupposes the acceptance by the defendants
that the earthworks had been completed in accordance with CAB 2.
Also, as it has been conceded that under the Act planning
permission or a layout plan deals, inter  [*110] alia, with
drains generally and of all categories of drains — indeed, here,
the monsoon drain and the building drains are clearly indicated
in CAB 3 — there is no valid or plausible reason why the
concrete perimeter drain could not also be drawn into CAB 3.
Consequently, its absence would indicate that such drain is not a
requirement in the development of a five-storey building, though
it may have been a requirement in respect of an 11-storey
building (that was never built).
Furthermore, the earthworks plan cannot complement the approved amended
layout plan, as in law it is the approved amended layout plan (CAB 3)
together with the conditions endorsed thereon, and not the earthworks
plan (CAB 2) that constitutes the planning permission. And the nature
of the plan in CAB 3 itself does not permit the construction of the
purported perimeter drain, having regard to sub-division of the land
concerned and the conditions imposed thereto.
(b)   The earthworks plan (CAB 2) relates to earthworks required in
respect of a 11-storey building whereas CAB 3 relates to the
proposed construction of a five-storey building. As such, the
specification or the very requirement for a perimeter drain may
be different in the case of a smaller building structure.
(c)   To hold that an earthworks plan could be read in conjunction or
together with a layout plan may hereafter give rise to a chaotic
situation where, in the event of a situation occuring, obversely
to the current case, in the two plans, a developer may probably
contend that he is under no obligation to construct a perimeter
drain shown in the layout plan because it is not in the
earthworks plan approved earlier in time.
(d)   The very issuance of the layout plan (CAB 3) would have the
effect of implicitly superseding the earthworks plan. This is a
reasonable and sensible approach which the court has to take, a
fortiori as, despite the defendants being clothed with sufficient
and wide powers under s 22 of the Act to refuse or to impose
conditions when granting planning permission, yet the defendants
did not impose in CAB 3 the condition requiring the construction
of a concrete perimeter drain.
(e)   The construction of a proposed concrete perimeter drain — if at
all it was intended to be a requirement, despite its absence in
CAB 3 — would create an absurdity, as such drain would run
parallel along the center of the 40-feet road to be constructed
by the plaintiffs and the Public Works Department.
(f)   To require that CAB 2 be read in conjunction with CAB 3 would
also run foul of ss 91 and 92 of the Evidence Act 1950 and the
established authorities. See Faber Merlin (M) Sdn Bhd & Ors v
Lye Thai Sang
[1985] 2 MLJ 380 and Keng Huat Film Co Sdn
Bhd v Makhanlall (Properties) Pte Ltd
[1984] 1 MLJ 243 .
(g)   There is no ambiguity or defect in CAB 3 (the layout plan), and
even if there is such defect or ambiguity, s 93 of the Evidence
Act 1950 would exclude extrinsic evidence to amend or explain
such document. Indeed, whatever the parties may in their heart of
hearts have intended, only the intentions as expressed in CAB 3
may be construed. See Goh Eng Wah v Yap Phooi Yin & Anor
[1985] 1 MLJ 329  [*111] .
(h)   Section 70A(5) of the Street, Drainage and Building Act 1974 (as
amended) is inapplicable as it was never contended that
earthworks have not been completed.
(i)   Since I have held that CAB 2 cannot be read into or compliment
(sic) CAB 3, I would adopt the dicta of Mohd Dzaiddin J (as he
then was), in Rethina Development Sdn Bhd v Majlis Perbandaran
Seberang Perai, Butterworth
(incidentally the same defendants)
[1990] 2 MLJ 111 at p 114H, who had this to say:
Based on the above facts, in my judgment, the MPSP had no power
to add, amend or go behind the conditions imposed in the layout
plan once approval of the said plan was granted.
In my opinion, that was an eminently correct approach to take;
considering that a local authority has ample and wide powers under s
22(3) of the Act to impose such ‘conditions as it deems fit’ when
granting planning permission, it would be wholly unfair and unjust to
allow them to impose fresh conditions especially at the stage of
issuance of occupation certificate of fitness, and after the developer
– who is essentially also an investor of the state — had already
incurred considerable construction expense. Regrettably, this has
happened again in the current case involving the same local council.
For all the above reasons, I hold that the plaintiffs are under no
obligations to build the concrete perimeter drain and the MPSP’s
requirement that this drain, which is not in CAB 3 (the layout plan),
be constructed, as a condition for the issuance of an OCF is not
justified in law and is ultra vires the Town and Country Planning Act
1976. The declaration sought as in prayer 3 of the plaintiffs’ claim is
thus also allowed.

With respect, we find ourselves unable to agree with the views expressed by the learned judge in the foregoing passages.

First, the learned judge has treated the Town and Country Planning Act 1976 and the Street, Drainage and Building Act 1974 as separate and unconnected pieces of legislation for the purposes of land development. Hence his use of the phrase ‘an altogether different legislation’ to describe the latter Act.

Now, there may be — and in this country, there are — several pieces of written law, both Acts of Parliament and subsidiary legislation, that regulate the development of land and the construction of or alteration to buildings. All these written laws contain requirements of one sort or another. Anyone proposing to engage in land development must observe the provisions of all the written laws that regulate this form of human activity.

It is, therefore, quite wrong to proceed upon the basis — as did the learned judge — that compliance with the conditions attaching to the planning permission granted under the Town and Country Planning Act 1976 is quite sufficient. Regard must also be had to the equally compelling  [*112] provisions of the Street, Drainage and Building Act 1974 which govern the carrying out of earthworks.

With respect, the learned judge appears to have completely misunderstood the important role played by an earthworks plan in the context of land development. Earthworks play an important role in any development. It was in recognition of this that Parliament amended the Street, Drainage and Building Act by introducing s 70A, sub-ss (1), (2) and (3) of which read as follows:
70A(1)  No person shall commence or carry out or permit to be commenced
or carried out any earthworks without having first submitted to
the local authority plans and specifications in respect of the
earthworks and obtained the approval of the local authority
thereto.
(2)   Where the earthworks are to be commenced or carried out for the
purpose of the construction of any building, street, drain,
sewer, or embankment, or for the laying of any cable or pipe, or
for the purpose of any other construction or work whatsoever, the
plans and specifications relating to such construction or work
required to be submitted under this Act or any by-laws made
thereunder shall be submitted to the local authority at the same
time as the plans and specifications in respect of the earthworks.
(3)   In granting the approval under subsection (1) the local authority
may impose such conditions as it deems fit.

This provision, therefore, makes it quite clear that earthworks are an integral part of land development. Equally, it is clear that an earthworks plan is an important document. It follows that any conditions that are reasonably imposed by a local authority in relation to earthworks must be given the same importance as those conditions subject to which planning permission is granted under the parallel statute.

The second point we make is this. The learned judge made the assumption that all the necessary earthworks had been completed at the date the respondent’s amended plan was approved. As a matter of pure fact, the assumption made is wrong because the perimeter drains, which are very much a part of the earthworks, were never constructed. And there is no dispute about this. It follows that the reasoning of the learned judge lacks the necessary factual basis and his conclusion upon the point is a non sequitur.

We now turn to deal with the third, and probably the most important, ground upon which the learned judge based his conclusion. In the passages of his judgment which we have reproduced earlier, the learned judge has made it clear that he relied on the extrinsic evidence rule housed in ss 91, 92 and 93 of the Evidence Act 1950 to justify his conclusion that the two plans — the approved amended layout plan and the earthworks plan — ought not to be read together. In the result, he held the appellant to have acted unreasonably in requiring the respondent to satisfy a new requirement as a condition for the issue of the certificate of fitness.

[*113]

In our judgment, the reasoning of the judge suffers from a serious infirmity. The authorities referred to and relied upon by him that deal with the extrinsic evidence rule deal with bilateral instruments in private law. Faber Merlin (M) Sdn Bhd & Ors v Lye Thai Sang & Anor [1985] 2 MLJ 380 was a case that concerned the interpretation of a sale and purchase agreement that related to a building, while Keng Huat Film Co Sdn Bhd v Makhanlall (Properties) Pte Ltd [1984] 1 MLJ 243 and Goh Eng Wah v Yap Phooi Yin & Anor [1985] 1 MLJ 329 were cases that concerned the construction of a covenant in a lease. The task of the court in these cases was confined to ascertaining the objective intention of contracting parties.

The present case calls for no such exercise. What is involved here is the rather simple question whether the requirements imposed by the appellant under the power given it by one or more of the statutes that regulate the use of the environment have been met. This the learned judge unfortunately did not appreciate. Neither did he recognize the irrelevance of the authorities cited by counsel for the respondent and relied upon by him in his judgment. He failed to realize that he was dealing with a public law case and not a construction summons taken out to interpret the clauses in a private document. That led him to the error into which he fell.

In the present case, there are at least three plans. There is the original plan for an 11-storey building. Then, there is the earthworks plan. Finally, there is the amended plan for a five-storey building, submitted by the respondent after construction had commenced. Although each may deal with different aspects, they all relate to the same project. For that reason, they must be read together. The judge was wrong when he said the opposite.

It follows that it is no answer for the respondent to say that it has met with all the conditions appearing on the amended approved layout plan. It must also comply with the conditions that appear on the earthworks plan. The condition about the perimeter drain may not appear on the approved amended layout plan. But it appears on the earthworks plan. That is sufficient. The judge treated it as a condition that was imposed later by the appellants. He was wrong in his perception of the facts, because that is not how it happened. Acting upon an erroneous fact pattern, he applied the dictum of Mohd Dzaiddin J in Rethina Development. That is certainly a misdirection. It has occasioned a miscarriage of justice in this case.

The fourth and last point made by the judge is that the condition in question gives rise to an absurdity because the perimeter drain, if constructed, would run along the centre of a 40-feet road to be constructed by the respondent and JKR. This point caused us some anxiety when Mr Yeoh first mentioned it during his submissions. However, Dato Zaki has carefully taken us through the relevant indorsements on all the relevant plans and demonstrated that the judge misunderstood the evidence on the point. Having read with care the three plans earlier mentioned, we are satisfied that the absurdity referred to by the judge does not exist.

[*114]

Could it then be said that the appellant was acting unreasonably in withholding the certificate of fitness? We do not think so.

That the law requires them to act as they have done is borne out by by-law 25(1)(b) of the Uniform Building By-Laws 1984 (being subsidiary legislation made under the Street, Drainage and Building Act 1974) which provides as follows:
25(1)  Certificate of fitness for occupation of a building shall be
given when –
(a)   …
(b)   all essential services, including access roads, landscape,
car parks, drains, sanitary, water and electricity
installation, firelifts, fire hydrant and others where
required, sewerage and refuse disposal requirements have
been provided.

For these reasons, the learned judge was wrong in granting the respondent the second declaration.

There is one last matter that requires our attention. It is the order of the learned judge directing an inquiry into damages.

We must say at once that nowhere in its summons did the respondent ask for an award of damages. It merely asked for an assessment. This is altogether wrong. Before an inquiry into or an assessment of damages may take place, there must be a judgment awarding damages, for it is only under a judgment awarding damages that an assessment or inquiry may take place. Though none saw it, the point is critical.

For present purposes, however, it is sufficient to state that the order made by the learned judge really impinges upon the declarations he had granted. Once these are set aside, the order for assessment falls to the ground, automatically and without more. We therefore do not propose to deal with the brief complaint mounted on substantive grounds made by Dato Zaki in the course of his submissions.

However, we will say this much. The respondent’s case — when put at its highest — alleged ‘Wednesbury unreasonableness’, not malice. Yet, the judge held that the appellant had acted in bad faith and out of malice. Having examined the relevant material in the record provided, we are entirely satisfied that there was absent any material to support this finding. We therefore deprecate, in the strongest of terms, the criticism levelled by the judge against the appellant in that part of his judgment when he came to deal with the issue of damages. The severity of the language employed by him to describe the conduct of the appellant was certainly not called for. All the appellant was doing in this case was merely carrying out the duty imposed upon it by Parliament. And the learned judge ought to have recognized this.

Having carefully considered this matter, we find the reasoning of the judge to be fatally flawed. For the reasons given in this judgment, we have no alternative but to allow this appeal. The declarations granted by the learned judge are hereby set aside. So is the order directing an assessment of damages. The respondent’s originating summons is hereby dismissed.  [*115] The costs of the proceedings in the High Court and the costs of this appeal shall be taxed and paid by the respondent to the appellant. The deposit paid into court by the appellant is to be refunded to it.

Order accordingly.

LOAD-DATE: March 14, 2005

S1 Short Title (Evidence Act 1950): The Act: Vacher & Sons, Ltd v London Society of Compositors and others HOUSE OF LORDS [1911-1913] All ER Rep 241; [1911-13] All ER Rep 241 HEARING-DATES: 24, 25 October, 18 November 1912 18 November 1912

[1911-1913] All ER Rep 241; [1911-13] All ER Rep 241

Vacher & Sons, Ltd v London Society of Compositors and others
HOUSE OF LORDS
[1911-1913] All ER Rep 241; [1911-13] All ER Rep 241
HEARING-DATES: 24, 25 October, 18 November 1912
18 November 1912
CATCHWORDS:
Trade Union – Action against- Action for tort – Competency – Trade Disputes Act, 1906 (6 Edw 7, c 47) s 4(1). Statute – Construction – Construction leading to absurdity – Adoption of alternative construction – Irrelevance of policy of Parliament in passing Act – Repugnancy of one provision in Act to another – Title of Act – Reference to title to ascertain scope of Act.

HEADNOTE:
By s 4(1) of the Trade Disputes Act, 1906: “An action against a trade union, whether of workmen or masters, or against any members or officials thereof on behalf of themselves and all other members of the trade union in respect of any tortious act alleged to have been committed by or on behalf of the trade union, shall not be entertained by any court.”

There is no context in the Act read as a whole rendering it necessary to cut down the literal meaning of the wide language of s 4(1) and import into that sub-section a provision that the tortious act referred to must have been committed in contemplation or furtherance of a trade dispute.

Accordingly, where a trading firm brought an action against a registered trade union to recover damages for conspiracy and libel and an injunction, it not being averred in the statement of claim, expressedly or impliedly, that the acts complained of were done in furtherance or in contemplation of a trade dispute,

Held: on its true construction s 4(1) amounted to a statutory prohibition against any court entertaining an action of tort against a trade union, and the defendant trade union must be struck out of the proceedings.

Decision of Court of Appeal, [1918] H KB 347, affirmed.

In the absence of a preamble to an Act there can be only two cases in which it is permissible to depart from the ordinary and natural sense of the words of the Act. It must he shown either that the words taken in their natural sense lead to some absurdity, or that there is some other clause in the body of the Act inconsistent with or repugnant to the enactment in question construed in the ordinary sense of the language in which it is expressed … A judicial tribunal has nothing to do with the policy of any Act which it may be called on to interpret. The only duty of the court is to expound the language of the Act in accordance with the settled rules of construction. It is as unwise as it is unprofitable to civil at the policy of an Act or to pass a covert censure on the legislature: per LORD MACNAGHTEN

In construing the words of a statute the court has nothing to do with the question whether or not the legislature has committed an absurdity. But if the words of the Act admit of two interpretations, then they ere not clear, and if one interpretation leads to an absurdity and the other does not, the court will conclude that the legislature did not intend to lead to an absurdity, and will adopt the other conclusion: per LORD ATKINSON The title of an Act is undoubtedly part of the Act itself, and it is legitimate to use it for the purpose of interpreting the Act as a whole and ascertaining its scope. This is not the case with the short title, which is given to the Act solely for the purpose of facility of reference. It is a statutory nickname to obviate the necessity of always referring to the Act under its full and descriptive title. It is not legitimate to use it to ascertain the scope of the Act. Its

object is identification and not description … we have to interpret statutes according to the language used therein, and though occasionally the respective consequences of two rival interpretations may guide us in our choice between them, it can only be where, taking the Act as a whole, and viewing it in connection with the existing state of the law at the time of the passing of the Act, we can satisfy ourselves that the words cannot have been used in the sense to which an argument ab inconveniente points: per LORD MOULTON

Appeal by the plaintiffs in the action from a decision of the Court of Appeal (VAUGHAN WILLIAMS and KENNEDY, LJJ, FARWELL, LJ, dissenting) reported [1912] 3 KB 347, reversing an order of CHANNELL, J, at chambers, who had reversed an order of Master WILBERFORCE, made on the application of the respondents (the defendants) directing that their name should be summarily struck out of the proceedings

The appellants were a firm of printers, and brought the action against the respondents, a trade union connected with the printing trade, to recover damages for conspiracy and libel, and for an injunction to restrain the further publication of the alleged libel

NOTES:
Notes

The provisions of s 4(1) of the Trade Disputes Act, 1906, were excluded in the case of offences against the Monopolies and Restrictive Practices (Inquiry and Control) Act, 1948 (see s 11(4) and against the Restrictive Trade Practices Act, 1956 (see s 24(8)).

Considered: National Telephone Co v Postmaster General (1913) 109 LT 562 Applied: Re Boaler, [1914-15] All ER Rep 1022 Considered: London Corpn v Associated Newspapers, [1915] AC 674 Distinguished: Sage v Eicholz, [1918-19] All ER Rep 426 Considered: Hardie and Lane, Ltd v Chilton, [1928] All ER Rep 36 Referred to: Gaskell v Lancashire and Cheshire Miners’ Federation (1912) 28 TLR 518; Valentine v Hyde, [1919] 2 Ch 129; Henshall v Porter, [1923] 2 KB 193; National Union of General and Municipal Workers v Gillian, [1945] 2 All ER 593; Longdon-Griffiths v Smith, [1950] 2 All ER 662.

As to torts arising out of the operations of trade unions, see 32 HALSBURY’S LAWS (2nd Edn) 516 et seq, and as to the interpretation of statutes, see 36 HALSBURY’S LAWS (3rd Edn) 382 et seq For cases see 43 DIGEST 112 et seq, and 42 DIGEST 609 et seq For Trade Disputes Act, 1906, see 25 HALSBURY’S STATUTES (2nd Edn) 1267.

CASES-REF-TO:
Cases referred to:

(1) Taff Vale Rail Co v Amalgamated Society of Railway Servants, [1901] AC 426; 70 LJKB 905; 85 LT 147; 65 JP 596; 50 WR 44; 17 TLR 698; 45 Sol Jo 690, HL; 43 Digest 127, 1295.

(2) Grey v Pearson (1857) 6 HL Cas 61; 26 LJ Ch 473; 29 LTOS 67; 5 WR 454; 10 ER 1216, HL; 42 Digest 626, 277.

(3) Sussex Peerage Case (1844) 11 Cl & Fin 85; 6 State Tr NS 79; 3 LTOS 277; 8 Jur 793; 8 ER 1034, HL; 42 Digest 650, 569.

(4) Duke of Bedford v Ellis, [1901] AC 1; 70 LJ Ch 102; 83 LT 686; 17 TLR 139, HL; 33 Digest 529, 68

(5) Cooke v Charles A Vogeler Co, [1901] AC 102; 70 LJKB 181; 84 LT 10; 17 TLR 153; 8 Mans 113, HL; 42 Digest 687, 1015

(6) R v City of London Court Judge, [1892] 1 QB 273, CA; 1 Digest (Repl) 120, 66

(7) Quin v Leathem, [1901] AC 495; 70 LJPC 76; 85 LT 289; 65 JP 708; 50 WR 139; 17 TLR 749, HL; 43 Digest 112, 1179

Also referred to in argument:

Conway v Wade, [1909] AC 506; 78 LJKB 1025; 101 LT 248; 25 TLR 779; 53 Sol Jo 754, HL; 43 Digest (Repl) 120, 1237

Fielding v Morley Corpn, [1899] 1 Ch 1; 67 LJ Ch 611; 79 LT 231; 47 WR 295, CA; affirmed sub nom Fielden v Morley Corpn, [1900] AC 133; 69 LJ Ch 314; 82 LT 29; 64 JP 484; 48 WR 545; 16 TLR 219, HL; 42 Digest 604, 52

R v Cockerton, [1901] 1 KB 322; 70 LJKB 281; 83 LT 595; 65 JP 115; 49 WR 252; 17 TLR 165; affirmed [1901] 1 KB 726; 70 LJKB 441 84 LT 488; 65 JP 435; 49 WR 433; 17 TLR 402, CA;LV

Fenton v Thorley & Co, Ltd, [1903] AC 443; 72 LJKB 787; 89 LT 314; 52 WR 81; 19 TLR 684; 5 WCC 1, HL; 42 Digest 648, 543

Bussy v Amalgamated Society of Railway Servants and Bell (1908) 24 TLR 437; 43 Digest 123, 1257

Rickards v Bartram (1908) 26 TLR 181; 43 Digest 123, 1258

Peru Republic v Peruvian Guano Co (1887) 36 Ch D 489; 56 LJ Ch 1081; 57 LT 337; 36 WR 217; 3 TLR 848; Digest (Pleading) 73, 635

Kellaway v Bury (1892) 66 LT 599; 8 TLR 433, CA; 42 Digest 108, 1026

A-G of Duchy of Lancaster v London and North Western Rail Co, [1892] 3 Ch 274; 62 LJ Ch 271; 67 LT 810; 2 R 84, CA; Digest (Pleadings) 71, 624

Linaker v Pilcher (1901) 70 LJKB 396; 84 LT 421; 49 WR 413; 17 TLR 256; 45 Sol Jo 276; 43 Digest 127, 1291

Temperton v Russell, [1893] 1 QB 715; 62 LJQB 412; 69 LT 78; 57 JP 676; 41 WR 565; 9 TLR 393; 37 Sol Jo 423; 4 R 376, CA; 43 Digest 114, 1185

COUNSEL:
Danckwerts, KC, and Hugh Fraser for the appellants ; Harold Morris (Holman Gregory, KC with him) for the respondents

Solicitors: Scatliffs; Shaen, Roscoe, Massey & Co

Reported by CE MALDEN, ESQ, Barrister-at-Law, Reported by WC SANDFORD, ESQ, Barrister-at-Law

JUDGMENT-READ:
Their Lordships took time for consideration

18 Nov 1912 The following opinions were read

PANEL: Viscount Haldane LC, Lord Macnaghten, Lord Atkinson, Lord Shaw and Lord Moulton

JUDGMENTBY-1: VISCOUNT HALDANE LC:

JUDGMENT-1:
VISCOUNT HALDANE LC:

This appeal raises the question of the true construction to be put on s 4 of the Trade Disputes Act, 1906 That Act was passed five years after the decision of this House in Taff Vale Rail Co v Amalgamated Society of Railway Servants (1) It had been there decided that a trade union, registered under the Trades Union Acts, could be sued in its registered name, and also that a trade union, whether registered or not, could, since the Judicature Acts, be sued in a common law action, if the persons selected as defendants were persons who, from their position, might fairly be taken to represent the union It was pointed out by LORD LINDLEY that if a judgment so obtained was for the payment of damages, it could be enforced only against the property of the union, and that to reach such property it might be necessary to make the trustees parties to any proceedings It is common knowledge that this decision gave rise to keen controversy as to whether the law required amendment On the one hand, it was contended that the principle laid down ought to remain undisturbed, because it simply imposed on trades unions the legal liability for their actions which ought to accompany the immense powers which the Trades Union Acts had set them free to exercise On the other side, it was maintained that to impose such liability was to subject their funds, which were held for benevolent purposes as well as for those of industrial battles, to undue risk It was said that by reason of the nature of their organisation and their responsibility in law for the action of a multitude of individuals who would be held in law to be their agents, but over whom it was not possible for them to exercise adequate control, they were, by the decision of this House, exposed to perils which must cripple their usefulness We have heard, in the course of this case, suggestions as to the merits of the conflicting points of view and as to the reasonableness, in interpreting the language of Parliament in the Trade Disputes Act, 1908, of presuming that the legislature was acting with one or other of these points of view in its mind For my own

part, I do not propose to speculate on what the motive of Parliament was The topic is one on which judges cannot profitably or properly enter Their province is the very different one of construing the language in which the legislature, has finally expressed its conclusions, and if they undertake the other province which belongs to those who, in making the laws, have to endeavour to interpret the desire of the country, they are in danger of going astray in a labyrinth to the character of which they have no sufficient guide In endeavouring to place the proper interpretation on the sections of the statute which are before this House, sitting in its judicial capacity, I propose, therefore, to exclude the consideration of everything excepting the state of the law as it was when the statute was passed, and the light to be got by reading it as a whole before attempting to construe any particular section Subject to this, I think that the only safe course is to read the language of the statute in what seems to be its sense.

The first question before your Lordships is whether a trade union, if it was committed a tortious act, such as a libel, can be sued for damages at all, even if the act was not committed in contemplation or in furtherance of a trade dispute Before the Trade Disputes Act was passed it undoubtedly could have been so sued, and the question is whether Parliament has put an end to this liability The Act is confined to trades unions within the definition of the trades Union Acts, 1871 and 1876 The title is “An Act to provide for the regulation of Trades Unions and Trade Disputes” This appears to me to indicate that the scope of the statute was not confined to the regulation of trade disputes merely Section 1 is confined to cases of trade disputes, and amends the law of conspiracy in such cases by precluding legal remedy unless the act done would have been actionable apart from the circumstances of agreement or combination to do it Section 2 is also confined to cases of trade disputes It legalises what is popularly called “peaceful picketing” Section 3 takes away the actionable character of any act done by a person in contemplation or furtherance of a trade dispute, if theground of action is only that what was done induced another person to break a contract of employment, or was an interference with the trade, business, or employment of another person, or with his right to dispose of his capital or his labour as he pleases It will be observed that all these sections relate to trade disputes, but that none of them relates exclusively to the case of a trade union Section 4(1) the section which has to be construed in the present appeal, relates exclusively to the case of a trade union It enacts: “An action against a trade union, whether of workmen or masters, or against any members or officials thereof on behalf of themselves and all other members of the trade union in respect of any tortious act alleged to have been committed by or on behalf of the trade union, shall not be entertained by any court”

I draw attention to the fact that this section differs from the three preceding sections not only in relating exclusively to the case of a trade union, but in that sub-s (1) omits to mention any restriction which would confine the tortious act to one in contemplation or in furtherance of a trade dispute Upon this point it has been contended by counsel for the appellants that such a restriction ought to be implied It is said that s 5, which provides that the Act may be cited as the Trade Disputes Act, and the scheme of the first three sections which deal only with trade disputes, show that the Act is to be interpreted as so confined, and that it cannot be supposed that the legislature intended to free trade unions from liability to the extent which a literal reading of s 4(1) would indicate.

With that contention I am unable to agree It is true that it is provided that the Act may be cited by the short title of the “Trade Disputes Act” But the governing title introduces the statute as an Act to provide for the regulation of trade unions and trade disputes The first three sections regulate trade disputes The fourth Section appears to carry out the other intention indicated by the initial title.

by laying down new law as to trade unions I can find no context in the Act read as a whole which indicates an intention to out down the literal meaning of the wide language of s 4(1) For reasons which I have already assigned, I think that it would not only be beyond the functions of a court of justice to presume that the legislature could not, when it passed the Act, have intended to go as far as the plain words used say, but that, if judges could speculate as to its intentions, they would probably speculate wrongly.

I pass, therefore, to the next point which was made for the appellants, and it turned on the effect of subs (2) of s 4, a subsection which, it was said, ought to be read as a proviso to sub-s (1) restricting its operation Section 4(2) is in these terms:

“Nothing in this section shall affect the liability of the trustees of a trade union to be sued in the events provided for by the Trades Union Act, 1871; s 9, except in respect of any tortious Act committed by or on behalf of the union in contemplation or furtherance of a trade dispute”

The Act of 1871 enabled trade unions to register, and provided by s 9 that the trustees of a registered trade union might sue or be sued ft such in cases concerning the property of the trade union The legislature appears to have desired to draw a distinction between the union and its trustees and to preserve the liability of the trustees under this section, even in the case of tortious acts committed by the union, damages arising out of which might, as pointed out by LORD LINDLEY in his judgment in the Tariff Vale Case (1) have been made effective against property in the hands of the trustees But a restriction is put on the liability of the trustees by excepting from it liability in respect of a tortious act committed by or on behalf of the union in contemplation or in furtherance of a trade dispute Having regard to the distinction drawn in the wording of the statute between the liability of the trade union and the liability of its trustees, I can see no justification for importing the provision restricting liability enacted in the latter sub-section into the word of sub-s (1) and think that on the second point made the argument which was addressed to the House, to the effect that the words of exception in the second subsection must be read as qualifying the whole section, cannot succeed.

I now turn to the facts out of which the questions of law which I have considered arose This action was one for damages for conspiracy and libel, brought by the appellants, whose business was that of printers, against the respondents, who were a trade union to which the Act of 1908 applied It does not appear whether there were trustees of the union or whether there was property vested in them which could have been made liable, assuming that the cause of action did not arise out of a trade dispute If there were trustees, they were not made defendants, and, indeed, if the advisers of the plaintiffs were apprehensive that the trial might disclose a trade dispute, there were good reasons for not joining the trustees A statement of claim was delivered which set out particulars of the conspiracy and libel, the gist of which was that the respondents had conspired to represent and had untruly represented the appellants as a firm which dealt unfairly by their workmen Without delivering a statement of defence the respondents applied to strike the name of the respondent society from the action on the ground that in the first place a trade union could not be sued at all in such an action, and that, in the second place, even if s 4(1) of the Trade Disputes Act, 1900, was to be read as applying only if there was a trade dispute, it did not appear on the face of the proceedings that the acts complained of had not arisen out of such a trade dispute Master WILBERFORCE made an order allowing the application CHANNELL, J, on appeal, discharged this order, and directed that the point should not be disposed of summarily, but should stand to the trial The Court of Appeal by a majority reversed the order of CHANNELL, J, and restored the order of Master WILBERFORCE VAUGHAN WILLIAMS, LJ, thought that the libel, even according to the bare.

description in the statement of claim, was, on the face of it, an act done in contemplation or furtherance of a trade dispute .

I entertain so much doubt on this point that if it were the only one raised I would be of the opinion of CHANNELL, J, that the application ought to stand over to the trial, in order that the facts might be ascertained which would enable the court to decide whether it had jurisdiction to entertain the action, but VAUGHAN WILLIAMS, LJ, decided in favour of the appeal before him on the other point He took the view that sub-s (2) of s 4 could not be read as qualifying the prohibition of the courts contained in sub-s (1) FARWELL, LJ, took a different view and dissented, and KENNEDY, LJ, held that the plain language of sub-s (1) could not be cut down excepting by indulgence in illegitimate speculation as to what the legislature must have intended On the other point he found himself unable to agree with VAUGHAN, WILLIAMS, LJ I am in complete agreement with the judgment delivered by KENNEDY, LJ [For the judgment of KENNEDY, LJ, see post p 254] The reasons which I have stated in examining the Act and its various sections have led me to the same conclusions as he has reached, and I, therefore, move that the appeal be dismissed with costs.

JUDGMENTBY-2: LORD MACNAGHTEN:

JUDGMENT-2:
LORD MACNAGHTEN:

The Trade Disputes Act, 1906, declares that:

“An action against a trade union in respect of any tortious act alleged to have been committed by or on behalf of the trade union, shall not be entertained by any court”

The language of the enactment is precise and unambiguous No one can doubt what the words mean It is “the universal rule,” as LORD WENSLEYDALE observed in Grey v Pearson (2) (6 HL Cas at p 106) that in construing statutes as well as in construing all other written instruments,

“the grammatical and ordinary sense of the words is to be adhered to, unless that would lead to some absurdity, or some repugnance or inconsistency in the rest of the instrument, in which case the grammatical and ordinary sense of the words may be modified so as to avoid that absurdity or inconsistency, but no further”

Acts of Parliament are, of course, to be construed “according to the intent of the Parliament which passes them” That is “the only rule” said TINDAL, CJ, delivering the opinion of the judges who advised this House in the Sussex Peerage Case (3) But his Lordship was careful to add this note of warning (11 Cl & Fin at p 143):

“If the words of the statute are in themselves precise and unambiguous, then no more can be necessary than to expound those words in their natural and ordinary sense The words themselves do alone in such case best declare the intent of the lawgiver”

Nowadays, when it is a rare thing to find a preamble in any public general statute, the field of inquiry is even narrower than it was in former times In the absence of a preamble there can, I think, be only two cases in which it is permissible to depart from the ordinary and natural sense of the words of an enactment It must be shown either that the words taken in their natural sense lead to some absurdity, or that there is some other clause in the body of the Act inconsistent with or repugnant to the enactment in question construed in the ordinary sense of the language in which it is expressed There is nothing absurd in the notion of an association or body enjoying immunity from actions at law Some people may think the policy of the Act unwise, and even dangerous to the community

Some may think it at variance with principles which have long been held sacred But a judicial tribunal has nothing to do with the policy of any Act which it may be called upon to interpret That may be a matter for private judgment The duty of the court, and its only duty, is to expound the language of the Act in accordance with the settled rules of construction It is, I apprehend, as unwise as it is unprofitable to cavil at the policy of an Act of Parliament, or to pass a covert censure on the legislature.

It was not contended that there is any inconsistency in the Trade Disputes Act, or any conflict between any of its clauses On the contrary, the argument rather was that it was consistent throughout, so consistent, and so clear that the omission of words, otherwise perhaps material, made no difference No words, it was said, were to be supplied; there was no room even for implication Section 4 was merely consequential on the sections which preceded it Throughout the statute from first to last the only case which Parliament was contemplating was the case where the tortious act complained of is done in furtherance or in contemplation of a trade dispute It was said that this was plain from the preceding sections, and that sub-s (2) of s 4 made it plainer still There is some difficulty in grasping an argument so ingenious and so subtle I agree with the learned counsel for the respondents, who put his case very well The appellants must fail unless the words “in contemplation or in furtherance of a trade dispute” are introduced into sub-s (1) of s 4 by construction or implication, or by some process of thought reading which I confess that 1 am unable to follow Section 4 is not, I think, consequential on the preceding sections in the sense in which the learned counsel for the appellants used the word “consequential” Section 4 seems to me to deal with a different subject and a different Act of Parliament The first three sections are concerned with the Conspiracy and Protection of Property Act, 1875 The first two sections refer in terms to that Act Section 3, though not mentioning the Act in terms, affects it, and amends it by making the act of “a person” in inducing a breach of contract, or in doing certain other things undoubtedly actionable before the Trade Disputes Act, 1908, actionable no longer if done in contemplation or furtherance of a trade dispute Section 4 is not directed to the Conspiracy and Protection of Property Act, 1875 In both its sub-sections it is directed to the Trade Union Act, 1871 Everyone knows that sub-s (1) was introduced in order to neutralise the effect of the decision in Taff Vale Rail Co v Amalgamated Society of Railway Servants (1) by an extension of the Trade Union Act 1871 It is not easy to see the object of sub-s (2) of s 4, or to understand its precise meaning It seems to me, therefore, that it will be better to leave the construction of that sub-section to be determined when it comes directly in question, if ever that occasion should occur However it may be construed it cannot, I think, affect the plain meaning of sub- s (1) or assist the appellants in any way I am of opinion that the action, as against the trade union, was incompetent, and that the appeal should be dismissed with costs.

JUDGMENTBY-3: LORD ATKINSON:

JUDGMENT-3:
LORD ATKINSON:

The sole question for decision in this case is, in my view, the proper construction of sub-s (1) of s 4 of the Trade Disputes Act, 1906 It has been quoted already The law upon the subject of the liability of a trade union to be sued in tort at the time when this statute was passed was, I think, this Under the decisions in Duke of Bedford v Ellis (4) and Taff Vale Rail Co v Amalgamated Society of Railway Servants (1) it must, I think, be taken (i) that a trade union, registered or unregistered, could be sued in respect of torts committed by its agents in a representative action, provided that the selected defendants were fairly representative of it; (ii) that a registered society might be sued in its registered name; and (iii) that if the trustees were made defendants in such an action, an order could be made by the court for the payment by them of the damages and costs recovered out of the funds of the society in their hands LORD LINDLEY lays down this last proposition in so many words in the Taff Vale Case (1) so that it was not at all necessary that, if judgment had been recovered against the union in

either of such actions, a second action founded on such judgment should be brought against the trustees to recover the amount of the damages and costs, which the judgment had converted into a speciality debt Equitable execution against the property of the union held by the trustees could be obtained in the original suit, if they were made parties to it.

In s 4(1) the representative form of action is expressly named in so many words, and it is enacted that an action of that kind brought in respect of any tort alleged to have been committed by or on behalf of a trade union shall not be entertained The sub-section further provides that any action for a similar tort shall not be brought against a trade union Thus both these modes of proceeding to obtain redress for the tortious act mentioned are in plain and unambiguous language prohibited Such actions, it says, “shall not be entertained by any court” Counsel for the appellants, insisted that this wide and positive prohibition must be cut down and limited in its scope to cases in which the action is brought in respect of a tort committed by or on behalf of a trade union “in contemplation or furtherance of a trade dispute,” and that a trade union should be held to remain as liable as it was before this statute was passed for all torts committed by it, or on its behalf, which were not committed “in contemplation or in furtherance of a trade dispute” He based his argument, as I understood him, upon two grounds: first, upon the consideration of the evil results which would follow from the wider construction, since it would, he said, raise trade unions above the law and enable them to commit torts of all kinds with impunity; and, secondly, upon the ground that s 4(1) is merely consequential upon ss 1, 2, and 3, and that, when taken in connection with these latter, together with sub-s (2) of the same section, it is necessary to limit sub-s (1) to the extent for which he contended, in order to bring it into harmony with the provisions of those earlier sections, as well as with those of s 4(2).

It is, no doubt, well established that in construing the words of a statute susceptible of more than one meaning, it is legitimate to consider the consequences which would result from any particular construction, for, as there are many things which the legislature is presumed not to have intended to bring about, a construction which would not lead to any one of those things should be preferred to one which would lead to one or more of them But, as LORD HALSBURY, LC, laid down in Cooke v Charles A Vogeler Co (5) a court of lacy has nothing to do with the reasonableness or unreasonableness of a provision of a statute, except so far as it may help it in interpreting what the legislature has said If the language of a statute be plain, admitting of only one meaning, the legislature must be taken to have meant and intended what it has plainly expressed, and whatever it has in clear terms enacted must be enforced, though it should lead to absurd or mischievous results If the language of this subsection is not overruled by some of the other provisions of the statute, it must, since its language is plain and unambiguous, be enforced, and your Lordships’ House sitting judicially is not concerned whether the policy which it embodies is wise or unwise, or whether its consequences are just or unjust, beneficial or mischievous LORD ESHER, MR, in R v City of Tondon Court Judge (8) states the principle thus ([1892] 1 QB at p 290): “If the words of an Act are clear, you must follow them, though they lead to a manifest absurdity.”

The court has nothing to do with the question whether the legislature has committed an absurdity or not In my opinion, the rule has always been this If the words of an Act admit of two interpretations, then they are not clear, and if one interpretation leads to an absurdity, and the other does not, the court will conclude that the legislature did not intend to lead to art absurdity, and will adopt the other Interpretation So that if in this case the words of this section are plain, and are not controlled by any other portions of the statute, the contention that to interpret.

them according to their natural and ordinary meaning would result in placing trade unions above the law is, for the purposes of the judicial decision of this case, entirely irrelevant We have nothing to do with it I think that the language is plain, and, therefore, I abstain from expressing any opinion on the character or the results of the enactment.

Next as to the contention that s 4(1) is only consequential on the three preceding sections: The first section simply aims at assimilating the civil and criminal law in respect of the particular kind of conspiracy mentioned in the section Section 3 of the Conspiracy and Protection of Property Act, 1875, provided that an agreement or combination of two or more persons to do, or procure to be done, any sot in contemplation or furtherance of a trade dispute between employer and workmen should not be indictable as a criminal conspiracy, if the act when committed by one person alone would not be a crime It thus struck, in the particular instance mentioned, at the principle of the criminal law of conspiracy to the effect that it is the agreement or combination which is the essence of the crime, and that, therefore, a combination or agreement to do, or procure to be done, something not in its own nature criminal if done by one person, might still be a crime In order to establish civil liability for a conspiracy, agreement or combination per so is not enough It must he followed by damage Damage can only be caused by some act, including in the word “act,” of course, the use of threatening words, and the writing and publishing, or speaking and publishing, defamatory words, or such like Therefore, it was only necessary, in order to protect from civil liability in this kind of case, to provide, as has been provided in s 1 of the Act of 1906, that.

“an act done in pursuance of an agreement or combination of two or more persons, in contemplation or furtherance of a trade dispute, shall not be action able if it would not be so when done without such agreement”

The words apply to all persons, whether members of trade unions or not, and to combinations between such persons As to s 2 of the Act of 1906, the Act of 1875, by.

s 7, made “watching and be setting” of the kind therein described criminal, but in its last paragraph limited the scope of the section by enacting that the action which would amount under its words to the crime of watching and besetting was not to be so treated if it was done merely to obtain or communicate information Section 2 of the Act of 1906 deals with civil as well as with criminal responsibility It makes the acts which it describes lawful acts, end secures immunity not only for the attending to obtain or communicate information, but also for the attending for the purpose of persuading any person to work or to abstain from working, provided always that these things are done, first peaceably, and secondly in contemplation or furtherance of a trade dispute But this section,: like the preceding one, is not confined to trade unions, or to the member, of trade unions It applies to one or more persons acting on his or their own behalf, or on behalf of a trade union or of an individual employer or firth The members of trade unions who watch or beset in a manner which deprives them of the protection of this section are, of course, liable criminally or civilly, according to the nature of the act done .

Section 3 of the Act of 1906 applies to all individuals It is intended to encroach upon the law as laid down in Quinn v Leathern (7) and the cases which preceded it, but, like the earlier provisions, it applies to all persons, whether members of a trade union or not It is quite true that in each of these sections the necessary condition, or one of the necessary conditions, to secure immunity is that the act should be done in contemplation or furtherance of a trade dispute It is from that circumstance that the saving grace apparently flows, and I can fully appreciate the force of the argument from analogy which was pressed upon us, that trade unionists should not escape liability unless they bring themselves within its absolving influence That argument would have more force if any consistent scheme or plan underlay this statute, but it is not so Sections 1 and 2 merely introduce qualifying .

provisions into two sections of existing statutes, and s 3 is designed merely to modify by the same qualification the law laid down in several cases No reason can, I think, be suggested why the legislature should not have expressly qualified the immunity conferred upon trade unions by s 4(1) in the manner suggested if they desired or intended so to do They have used plain, clear, and unambiguous language to confer this immunity, and I do not at all think that it is.

necessary to qualify that language to bring the provisions of the sub-section into harmony with the provisions of the sections which have preceded it.

There remains for consideration the second sub- section of s 4 Counsel for the appellants relied strongly upon this sub-section in support of his contention The qualification common to ss 1, 2, and 3 is introduced here to qualify to that extent the statutory liability imposed upon the trustees, who may not be members of the union at all, by s 9 of the Trade Union Act, 1871, and he urged that the use of the words “nothing in this section,” with which the sub-section commences, shows that the legislature thought and intended that the words “in contemplation or furtherance of a trade dispute” should be taken as by implication introduced into sub-s (1) I think, however, that it is clear what the meaning and object of the sub-section really is A proceeding against the trustees under s 9 of the Act of 1871 is in fact, if not in form, a proceeding in ram against the property of the trade union In that sense it is an action against the union itself Judgments for damages against a trade union for torts committed by its agents, in whatever form the action may be brought, can only be satisfied out of the property vested in the trustees, and it was, I think, apprehended by the legislature that the wide and positive provisions of sub-s (1) might be taken as practically repealing in part s 9 of the Act of 1871, and conferring an immunity on the trustees as absolute as that conferred upon the union This sub-section, while qualifying their liability to some extent by the introduction of the provision common to ss 1, 2, and 3, was, I think, passed ex abundanti cautela to meet this possible danger, and, save as to that qualification, to preserve unimpaired the liability imposed on the trustees by s 9 of the Act of 1871.

In the view which I take of the provisions of s 6(1) it is not necessary to determine whether any evidence of the existence of a trade dispute is disclosed in the statement of claim, or any evidence that the alleged libel was published in contemplation or furtherance of such a dispute I wish, however, to point out that in a proceeding such as that adopted in this case, which is in truth somewhat of the nature of a demurrer to the statement of claim, the only facts which can be taken as admitted are those which are expressly or impliedly averred in the statement of claim itself Inferences of fact must be drawn by the jury, and no court can, for the purpose of such a proceeding, take as admitted a fact not averred, but one which is in truth an inference from facts which are averred in that pleading In this statement of claim it is not averred, expressly or impliedly, that a trade dispute existed or was in contemplation Neither is it averred that the act complained of was done in furtherance or contemplation of such a dispute In my opinion, therefore, this case must be disposed of on the assumption that no trade dispute existed, or was in contemplation, and that this libel was not published in contemplation or furtherance of such a dispute On the whole, I am of opinion that the appeal fails, and should be dismissed with costs.

JUDGMENTBY-4: LORD SHAW:

JUDGMENT-4:
LORD SHAW:

By s 4(1) of the Trade Disputes Act, 1906, it is provided:

“An action against a trade union, whether of workmen or masters, or against any members or officials thereof on behalf of themselves and all other members of the trade union in respect of any tortious act alleged to have been committed by or on behalf of the trade union, shall not be entertained by any court”

It is conceded that this action, which is against a trade union in respect of a tort, is within the class of actions there set forth, if the words of the sub-section mean what they say I think that the sub-section is neither self-contradictory nor .

repugnant to the other provisions of the Act, and that, as regards the words themselves, they are unambiguous, comprehensive, and imperative Were they ambiguous, other sections or sub-sections might have been invoked to clear up their meaning, but, being unambiguous, such a reference might distort that meaning, and so produce error; and of course this is a fortiori the case if a reference is suggested, not to something within, but to considerations extraneous to the Act itself If, for instance, it be argued that the mind of Parliament, looking before and after, having in view the past history of a question, and the future consequences of its language, must have meant something different from what it has said, then it must be answered that all this essay in psychological dexterity may be interesting, may help to whittle language down, or even to vaporise it, but is a most dangerous exercise for any interpreter like a court of law, whose duty is to accept loyally and to expound plainly the simple words employed I, therefore, agree entirely with LORD MACNAGHTEN in his view of this case.

The comprehensiveness is plain; the action against a trade union which no court is to entertain is “in respect of any tortious act,” &c To limit this to tortious acts of a particular character, or in respect of particular things, such as trade disputes, is to imply an addition to the language, and to import a limit to the comprehensiveness of the section, and so pro tanto to defeat the statute Nor is the imperative doubtful – no court is to entertain such an action Apart altogether from the pleadings it is pars judicis to stop the case whenever its true nature is revealed To entertain the action would be to disobey the legislature, and would constitute a usurpation on the part of the judiciary I content myself with these propositions, and do not enter into the details I refrain for this reason, that these details, together with what are, in my humble opinion, the proper conclusions to be derived therefrom, have been marshalled by KENNEDY, LJ, in a judgment to which I do not feel that I could usefully add anything For the judgment of KENNEDY, LJ, see post p 254.

JUDGMENTBY-5: LORD MOULTON:

JUDGMENT-5:
LORD MOULTON:

I concur The only question raised by this appeal is, in my opinion, the proper construction of s 4(1) of the Trade Disputes Act, 1906 If it be construed in the manner contended for by the respondents it amounts to a statutory prohibition to all courts against entertaining an action of tort against a trade union This renders it obligatory upon the court to stay such an action so soon as it is made aware of its existence To allow it to come to trial would, in nay opinion, be “entertaining” it The statute so interpreted gives protection to trade unions against actions of tort, not by furnishing them with a defence, but by giving them complete immunity against legal proceedings The words of the sub-section appear to me to be free from any ambiguity when taken apart from their context in the Act At the date when the Act was passed it had been settled that trade unions could he sued in a representative action, or, if they were registered trade unions, under their registered name, and the plain meaning of the enactment is that, however the trade union be sued, the court shall not entertain the action if it is in respect of a tortious act alleged to have been committed by or on behalf of the trade union But the appellants say that when the whole Act is considered it will appear that this is not the right construction, and that, on the contrary, the general language of the section must be limited by implication from other parts of the Act It is, of course, a well-recognised principle in the interpretation of the statutes that a statute must be looked at as a whole, and I shall, therefore, as the matter is of great importance, proceed to consider in detail the arguments urged on behalf of the appellants for thus restricting the meaning of the enactment .

The Act is entitled “An Act to provide for the regulation of Trades Unions and Trade Disputes” It consists, substantially, of four enacting sections The first section amends the law as to combination, the second permits peaceful picketing, the third amends the law by which it was actionable to persuade servants or workmen to break contracts of employment There is a similarity in the objects.

of the three sections inasmuch as they all operate to increase the immunity of the individual in respect of acts such as usually occur in connection with trade disputes; but the sections have nothing else in common They are not parts of any integral scheme of legislation, but only amendments of specific points in the law as it then stood, partly by reason of the common law, and partly by reason of specific Acts of Parliament I am satisfied that these sections do not, either individually or collectively, throw any light on the interpretation of s 4, which relates to a wholly different subject Counsel for the appellants would have us limit the generality of the words “any tortious acts” by reading in or implying the limitation “in contemplation or furtherance of a trade dispute” He based his contention on three grounds: (i) The title of the Act; (ii) the presence of the words in sub-s (2) of s 4; and (iii) the argument ab inconvenienti He further urged us to treat the clause as consequential upon the first three sections of the Act, but with that contention I have already dealt The title of an Act is undoubtedly part of the Act itself And it is legitimate to use it for the purpose of interpreting the Act as a whole, and ascertaining its scope This is not the vase with the short title, which, in this case, is “The Trade Disputes Act, 1906″ That is a title, given to the Act solely for flip purpose of facility of reference If I may use the phrase, it is a statutory nickname to obviate the necessity of always referring to the Act under its full and descriptive title It is not legitimate, in my opinion, to use it for the purpose of ascertaining the scope of the Act Its object is identification and not description The full title of the Act is, as I have said, “An Act to provide for the regulation of Trade Unions and Trade Disputes” The appellants ask us to read this as if it wore “for the regulation of trade unions as to trade disputes” and to treat the Act as though it related solely to trade disputes, so that s 4(1) must be road with that limitation I can see nothing to justify such an extraordinary mode of construing the Act The title as it stands is not only intelligible, but describes admirably the purposes of the Act Sections 1, 2, and J relate to trade disputes without any special reference to trade unions, and s 4 relates t, trade unions, whichever of the two rival interpretations of the section he adopted It is evident, therefore, that the title of the Act is amply accounted for, whatever be the view which the House takes of the matter in dispute, and, therefore, it cannot assist its in deciding between the two proposed constructions The point next urged on behalf of the appellants was that s 4 should be read as a whole and the limitation “in contemplation or furtherance of a trade dispute” should be treated as implied in sub-s (1) because it is present in sub-s (2) This contention appears to me to be directly contrary to the most elementary principles of the construction of statutes To my mind, as a matter of construction, the fact that sub-s (1) speaks of tortious acts generally, and sub-s (2) speaks of a certain class of tortious acts, creates a contrast between the two sub-sections which emphasises the generality of the one and the limited character of the other If there were any difficulty of grammatical construction or interpretation of the language of sub-s (1) it might be necessary to consider whether, taking the section as a whole, there was not some interdependence of one sub-section on the other But inasmuch as the language of sub-s (1) is clear and unambiguous, this is not open to us There are, no doubt, difficulties arising from the drafting of the section, and I shall consider them presently, but they arise exclusively in connection with sub-s (2) and afford no aid to the contention of the appellants.

Finally, the argument ab inconvenienti is pressed upon us It is urged that it is impossible to suppose that the legislature could have intended to give so wide an immunity to trade unions as that which follows from taking the words of sub-s (1) in their natural sense The argument ab inconvenienti is one which requires to be used with great caution There is a danger that it may degenerate into a mere judicial criticism of the propriety of the acts of the legislature We have to interpret statutes according to the language used therein, and though occasionally the respective consequences of two rival interpretations may guide us in our choice .

between them, it can only be where, taking the Act as a whole, and viewing it in connection with the existing state of the law at the time of the passing of the Act, we can satisfy ourselves that the words cannot have been used in the sense to which the argument points There is nothing of the kind here At the time of the passing of the Act the recognised state of the law was that a trade union could be sued in the wine way as any other association by the procedure of a representative action, or, in case it was a registered trade union, under its registered name That this was the state of the law had, no doubt, come as a surprise to large sections of the community Even in the courts themselves there had been a difference of opinion on the point, as is shown by the history of the Taff Vale (1) litigation Under these circumstances the Trade Disputes Act, 1906, was passed, and we find in it a plain provision that no action shall be entertained against a trade union by either of the two methods of procedure by which, at that time, such an action could be brought, in case the action is in respect of a tortious act Under such circumstances a court is not justified in allowing itself to be influenced by the argument ab inconvenienti The legislature has expressed its decision plainly that such should be the law.

I am further of opinion that too much has been made of the supposed gravity of the consequences of the enactment It will be seen that it does not affect the personal liability of any individual Trade unions, like other associations, must act through agents, and it is a fundamental principle of the English law that no tortfeasor can excuse himself from the consequences of his acts by setting up that he was acting only as the agent of another All that the section takes away is the power of proceeding against the association, or making its corporate funds liable The association, therefore, is in a position in some respects analogous to, though by no means identical with, the position of a statutory corporation with regard to contractual acts which are ultra vires No matter how completely the act may be in form an act (if the corporation, it cannot be made liable under the contract because it must act through agents, and it could give no authority to anyone to do on its behalf an act which was ultra vires Nor is such a provision of a wholly novel type in connection with trade unions In s 4 of the Trade Union Act 1871, we find a list of legal proceedings which, although the association had by that Act been made legal, the courts were not, on that account, permitted to entertain It is true that the Trade Disputes Act, 1908, makes an addition to the list which is of enormous importance, and does so in very peremptory language, but it cannot be said that, interpreted according to its plain language it is of a type wholly without precedent in past trade legislation.

The real difficulty in the interpretation of s 4 is found in sub-s (2) which reads as follows:

“Nothing in this section shall affect the liability of the trustees of a trade union to he sued in the events provided for by the Trade Union Act, 1871, s 9, except in respect of any tortious act committed by or on behalf of the union in contemplation or in furtherance of a trade dispute”

The difficulty is caused by the fact that there is nothing in sub-s (1) of s 4, which relates to suing the trustees of a trade union It only refers to suing the officials of a trade union when they are sued in a representative action, and that is not what is referred to in sub-s (2) One would be inclined to avoid the difficulty by saying that the sub-section was put in ex abundanti cautela only, were it not for the exception which it contains, which would seem to indicate that sub-s (1) would have granted immunity to the trustees in respect of actions of tort coming under s 9 of the Act of 1871, and that it was the intention of the legislature to limit that immunity to cases where the tort was committed by, or on behalf of, the union, in contemplation or in furtherance of a trade dispute Whether this is or is not the true interpretation of the section as a whole is not before us in the present appeal, but I have thought it right to indicate the real difficulty which exists in its interpretation.

It, I think, points either to imperfect drafting, or to some intermediate provision having been struck out without the proper consequential amendments being made in the language of sub-s (2) But the difficulty, however great, has no bearing on the point which is before the House The language of the section, so far as it relates to the present case, is clear and unambiguous, and, in my opinion, we must follow, it I am, therefore, of opinion that the decision of the Court of Appeal was right, on the lines adopted by KENNEDY, LJ, in his judgment (infra) and that this appeal should be dismissed with costs 3 April 1912 KENNEDY LJ, read the following judgment:- The plaintiffs, who are printers, sued the defendant society, which is a trade union, and two other defendants, who are respectively the secretary and the organising secretary of the defendant society, claiming damages for torts, which the plaintiffs allege to have been committed by all of the three defendants These torts, as stated in the plaintiffs’ pleading, consist of (i) libel, (ii) conspiracy to injure the plaintiffs as printers by the publication of the alleged libels The libels in every case but one consist of the contents of a document entitled “The Compositor’s Fair List and Guide to the London Printing Office,” sent by the defendants with covering letters to actual or possible customers of the plaintiffs In para 13 there is a further libel charged in respect of a letter therein set out which was addressed by the defendant Holmes, as agent (so the plaintiffs allege) of his co-defendants, as well as on his own behalf, to the United Committee for the Taxation of Land Values The plaintiffs in substance and effect allege in their statement of claim that the meaning and the purpose of all these communications was to injure the plaintiffs by representing that the plaintiffs had been guilty of unfair dealing in their business as printers; that they treated their employees harshly and unfairly, and never employed trade union compositors, and were not, therefore, persons fit to be intrusted with the execution of orders for printing For the purpose of deciding the matter of the present appeal it must be assumed that the plaintiffs can substantiate their charges of tort as pleaded by them in the statement of claim .

The application with which we have to deal is an application to strike out the name of the defendant society from the writ of summons and all subsequent proceedings in this action under Ord 25, rr 2, 4, on the ground that the case, as presented by the plaintiffs in their pleading, discloses no reasonable cause of action against the defendant society CHANNELL, J, in chambers dismissed this application, giving leave to appeal; and this court has to say whether that decision was right or not The question is undoubtedly one of importance, for it involves the interpretation of s 4(1) of the Trade Disputes Act, 1906 If I felt a doubt as to the meaning and effect of this enactment in relation to the present case, I should assuredly, whatever might be the inclination of my own mind as to the true interpretation, affirm my brother CHANNELL’S, decision, and leave the point to be argued at the hearing of the action I have, however, come to the conclusion that the meaning and effect of the enactment in relation to the plaintiffs’ action is not open to any doubt; that the statement of claim, every statement in which I assume, for the purpose of deciding the question before us, to be true, does not disclose any reasonable cause of action against the defendant society; and, therefore that this application to strike out its name as a defendant ought to be allowed Nothing, as it appears to me, could be clearer or more explicit than the language of the enactment itself:

“An action against a trade union in respect of any tortious act alleged to have been committed by or on behalf of the trade union shall not be entertained by any court”

The statement of claim alleges torts – libel and conspiracy – it sues this defendant, the trade union, in respect of those alleged torts It follows, as I venture to think, that we cannot allow such an action to be entertained by the High Court of Justice against this defendant without contravening the express provisions of the Act of Parliament.

What are the arguments against this view? I trust that I do not do any injustice to the case as it was presented to this court with his usual force and skill by counsel for the defendants, if I state the arguments put forward by the plaintiffs in the following propositions: (i) It is inconceivable, or at all events most improbable, on grounds of public policy, that the legislature should have accorded so large and special an immunity to a trade union, and the court therefore ought to presume in favour of any limitation which can reasonably be suggested in order to limit the effect of the enactment (ii) We may infer such a limitation from the presence in ss 1 and 3 of the words, “An Act done in contemplation or furtherance of a trade dispute,” and the presence of similar words in s 4(2) and from the provision in s 5 that “this Act may be cited as the Trade Disputes Act, 1906″; and, therefore, we may properly read into s 4(1) after the words “and tortious act alleged to have been committed by or on behalf of the trade union” the words “in contemplation or furtherance of a trade dispute” (iii) Section 4(2) is inconsistent with the attribution of its natural meaning to the language of s 4(1).

I must confess myself unable to attach weight to these arguments In regard to the alleged improbability of the legislature having meant what it appears from the natural and ordinary sense of the words in s 4(1) to have enacted, I say that I decline to speculate in regard to any statutory enactment which it becomes my duty to interpret as to what was the policy to which the legislature thought it was giving the force of law Nothing in my humble judgment could be more dangerous, if the words of a statute according to their natural grammatical sense are plain, than to allow oneself to drift into a wilderness of conjectures as to the priori probability or improbability of the legislature having intended to say what it has in fact said I agree entirely with the proposition that, in construing and applying s 4(1) inasmuch as it accords, as on any view it does, a novel immunity from legal proceedings to one particular kind of association, the enactment ought to be strictly construed I agree also that if a section in an Act of Parliament is either on its face ambiguous, or, if read in that which is prima facie the natural meaning of the words, is plainly inconsistent with the context and the very purpose of the Act of which it is part, it is legitimate, in construing the section, to treat the purpose of the Act as appearing in it as the governing element in the choice of interpretations, even although, in the latter of the two cases which I have put, a less natural meaning has in consequence to be imposed upon the language of the section But none of these considerations appear to me to avail the plaintiffs here Construex s 4(1) as strictly as one can its simplicity and freedom from ambiguity are, in my humble judgment, transparently clear; there is nothing in the purpose of the Act, and the Act must speak for itself, with which the natural interpretation of s 4(1) is inconsistent In this connection it is convenient to consider the limitations which the plaintiffs seek to introduce into s 4(1) and the arguments which they endeavour, as I have already stated, to draw from the language in ss 1, 3, and 5, and from the title of the Act itself in s 5 The plaintiffs propose to read into s 4(1) after the words “committed by or on behalf of the trade union,” the words “in contemplation or furtherance of a trade dispute,” or at any rate to add words to that effect Why? Because, they argue such words are to be found where, under ss 1, 3, and 4, sub-s (2) the legislature is granting a decree of immunity from legal liability for wrongdoing to individuals, and it is reasonable

to infer that it was only subject to the same limitation that the legislature intended to grant immunity from wrongdoing to the trade union I can only say that I see nothing to compel me to make such an assumption as to the intention of the legislature Knowing, as everyone does, the controversy as to the protection of trade union funds, I decline to infer from the limitation of the immunity of individuals in other sections that the legislature could not have intended to give an unlimited measure of immunity to the trade union, And, to my mind, the very fact that in each of those other parts of this short Act which are referred to by the plaintiffs we find the express insertion of the limitation makes it most improbable, to say the least, that the omission of such a limitation in s 4(1) was a casual slip and not intentional I am not impressed by the argument founded by the plaintiffs on the title of the Act and on the provision in s 5(1) that the Act may be cited as the Trade Disputes Act, 1906, If the Act is by its title an Act to provide for trade disputes, it is also by its title an Act to provide for the regulation of trade unions; if under s 5 it may be cited as the Trade Disputes Act, 1906, the Trade Union Acts of 1871 and 1876 and this Act, according to the same section, may be cited together as the Trade Union Acts, 1871 to 1906.

This brings me to the consideration of the last of the arguments which were put forward on behalf of the plaintiffs It is contended that s 4(2) shows, or tends to show, that some such limitation as the plaintiffs suggest must be read into s 4(1) I venture to think that the purposes for which this s 4(2) was inserted are not difficult to understand, and that nothing in its provisions requires or justifies a rejection of the natural interpretation of sub-s (1) The first half of sub-s (2) runs thus:

“Nothing in this section shall affect the liability of the trustees of a trade union to be sued in the events provided for by the Trade Union Act, 1871, s 9″

That section (so far as it is material to the present question) empowered the trustees of a trade union to bring or defend or cause to be brought or defended any action, suit, prosecution, or complaint, in any court of law or equity, touching or concerning the property, right, or claim to property of the trade union; and provided that they (that is, the trustees) should and might sue or be sued, plead or be impleaded, in any court of law or equity in their proper names without other description than the title of their office But for the provision of the first half of subs (2) of this Act, which preserves the liability of the trustees to be sued in the events provided for by s 9 of the Trade Union Act, 1871, it might have been successfully contended that the operation of the previous subsection was to deprive a person who has been injured in a matter touching or concerning the property of the trade union – as for example, by a nuisance – from any remedy This the legislature apparently did not desire, and the first half of s 4(2) effectually preserves the right of action for such torts But if the sub-s (2) had stopped at its first half an action could have been brought against, the trustees under s 9 of the Act of 1871 if the subject of claim was one touching or concerning the property of the union, even if the claim was based on tort which had been done in contemplation or furtherance of a trade dispute, and so an exception would have been introduced to the scheme of the Act which is contained in ss 1 and 3 of the Act of 1906 To prevent this the legislature enacted this second half of sub-s (2):

“except in respect of any tortious act committed by or on behalf of the union in contemplation or in furtherance of a trade dispute”

So s 9 of the Act of 1871 stands subject to the exception that the act complained of and forming the basis of claim cannot be made the subject of claim against the trustees of the union if that act is one done in contemplation or furtherance of a trade dispute.

In the result, the liability of the trustees under s 9 of the Trades Union Act, 1871, for wrongs touching or concerning the property of the trade union is preserved,

except where the alleged wrong Is committed in contemplation or furtherance of a trade dispute I am unable to see, therefore, in what way subs (2) assists the plaintiffs in their claim to insert such a limitation as they suggest in sub-s (1) In my opinion, the language of that sub-section must be read in its natural sense, without the introduction of any qualifying words, and this appeal should be allowed I have only to add, having had the opportunity of reading and considering the judgment of VAUGHAN WILLIAMS, LJ, that, if the insertion of any qualifying or modifying words into s 4(1) is justifiable, the insertion of “as such” after “trade union,” as the lord justice suggests, seems to me to he the one least open to any objection, and even if such an insertion were made, the defendants’ application succeeds, for the reason Which VAUGHAN WILLIAMS, LJ, himself stated in his judgment – namely, that the facts as alleged by the plaintiffs themselves in the statement of claim show that the alleged torts are such as were committed by a trade union as such I think, therefore, the appeal should be allowed

DISPOSITION:
Appeal dismissed

Penipuan Polis DiRaja Malaysia: N Indra a/p P Nallathamby v Public Prosecutor [2010] 1 MLJ 861 CRIMINAL REVISION NO 43–38 OF 2009 HIGH COURT (SHAH ALAM) DECIDED-DATE-1: 8 OCTOBER 2009 YEOH WEE SIAM JC

1 MLJ 861, *; [2010] 1 MLJ 861

The Malayan Law Journal

N Indra a/p P Nallathamby v Public Prosecutor
[2010] 1 MLJ 861
CRIMINAL REVISION NO 43–38 OF 2009
HIGH COURT (SHAH ALAM)
DECIDED-DATE-1: 8 OCTOBER 2009
YEOH WEE SIAM JC
CATCHWORDS:
Criminal Procedure – Revision – Application for – Search warrant issued by magistrate – Whether function of magistrate was a judicial function when issuing search warrant – Whether magistrate erred in issuing search warrant – Whether search warrant hinder completion of second post-mortem which was requested and paid for by deceased family

Criminal Procedure – Search warrant – Requirements of – Search warrant issued to seize documents, articles and samples of body parts – Whether s 51 of the Criminal Procedure Code must be applied first – Whether search warrant spent within time prescribed – Whether requirements of productions of seized materials to be produced before magistrate was fulfilled – Criminal Procedure Code ss 51 & 54(1)(a)

HEADNOTES:
The applicant is the mother of Kugan a/l Anathan (‘the deceased’) who died while in police custody on 21 January 2009. The applicant was dissatisfied with the post mortem report on the deceased conducted by the Serdang Hospital. Subsequently, the applicant requested Pusat Perubatan University Malaya (‘PPUM’) to conduct a second post mortem on the deceased. PPUM agreed but on 6 April 2009 the police conducted a search on the Department of Pathology in PPUM in accordance to a search warrant that was issued by the Petaling Jaya Magistrate Court (‘PJ Magistrate’s Court’) on the same day. The police seized documents, articles and samples of body parts of the deceased (‘the samples’) which were kept by a forensic doctor in PPUM. The applicant informed that the samples were required to be sent to a laboratory in Australia for toxicology test before the second post mortem report on the deceased could be completed. The applicant, on 12 August 2009 applied for a revision of the search warrant issued by the PJ Magistrate’s Court. The applicant argued that (i) the police should have used s 51 of the Criminal Procedure Code (‘CPC’) before applying for search warrant; (ii) the second post mortem was requested and paid for by the family of the deceased; (iii) the search warrant was wrongly issued since the second post mortem had not been completed yet; and (iv) the function of the magistrate in issuing the search warrant was a judicial function and that the magistrate had erred in  [*862] issuing the search warrant. However, the public prosecutor submitted, inter alia, (i) that the search warrant dated 6 April 2009 was issued in accordance to s 54(1)(a) of the CPC; (ii) that the search warrant had already been executed and spent according to the limitation period imposed on the search warrant; (iii) the applicant’s application was made under s 413 of the CPC and accordingly the seizure by the police pursuant to the search warrant had been reported to the magistrate; and (iv) that PPUM was the legitimate and appropriate owner to apply for the return of all the samples seized under the search warrant. It was recorded in the PJ Magistrate’s Court that a search warrant under s 54(1)(a) of the CPC was signed by the Registrar of the Petaling Jaya Sessions Court (‘the registrar’) on 6 April 2009. The application by the police for a search warrant to be issued was addressed to the PJ Magistrate’s Court. The summons were served to the Director General of PPUM and a doctor to submit the requested documents to the police. However, the PPUM and the doctor failed to comply with the requirement of the summons on the ground that the documents were privileged documents. The prosecution subsequently, applied for the search warrant under s 54(1)(a) of the CPC.

Held, allowing the application in part:
(1)   There was no record to show that the PJ First Class Magistrate had
exercised his judicial function under s 54(1)(a) of the CPC, to decide
whether there was any reason to believe that the summons under s 51 of
the CPC had not been complied with. The registrar who signed the search
warrant had acted in her capacity as a second class magistrate and
hence, was empowered to issue and sign a search warrant under s 83(b)
together with s 83(a) of the Subordinate Courts Act 1948 (see paras 26
& 33).
(2)   The registrar had exercise accordingly the judicial function of a
second class magistrate under s 54(1)(a) of the CPC. The registrar had
applied her judicial mind to the application by the police before
deciding to issue the search warrant as the registrar had imposed two
additional conditions upon the application of the search warrant
namely; (i) the search and seizure must be conducted within three days
from 6 April 2009; and (ii) that after the search the police were to
produce all articles seized before the magistrate’s court. The
application for a revision was dismissed as the registrar’s order
issuing the search warrant was correct, legal and proper (see paras 36–
37).
(3)   Section 413 of the CPC relied upon by the prosecution does not apply to
the situation of the case. The prosecution erred in its submissions to
state that the property in this case had been reported to the
magistrate who then ordered the police to hold the property until the
investigation  [*863] was over. However, on record there was no
proof that the magistrate had ordered that the police to hold the
seized property (see para 38).
(4)   It was clear that the police did not comply with the requirement in the
search warrant signed by the registrar to search and ‘produce the same
forthwith before the Magistrate’s Court’. The facts showed that within
two days of the seizure which was 8 April 2009, a police officer had
informed the registrar of his actions but he did not produce all the
items before the magistrate’s court. It was confirmed that the articles
seized were not produced before the magistrate’s court. The police
officer had returned the search warrant together with the police
reports in compliance with the last part of the conditions stated in
the search warrant. However, the police officer failed to comply with
the most critical or material part of the conditions in the search
warrant, namely to produce all articles seized before the magistrate’s
court within three days from the date of search and seizure on 6 April
2009. The police hence, had acted in contravention of the conditions in
the summons (see paras 48–49).
(5)   The applicant had the locus standi in requesting the samples of the
deceased’s body parts since she was the mother of the deceased. The
samples of the body parts belonged to the applicant’s deceased son. All
other documents or articles seized relate to the second post mortem of
the deceased and the applicant was not seeking the seized articles be
returned to her. The applicant applied for the samples and articles
seized to be returned to the Department of Pathology, PPUM to enable
the completion of the second post mortem procedures and issue a report
on the deceased for the applicant (see para 57).
(6)   The police are to produce before the magistrate’s court before a first
class magistrate all samples or specimens and articles seized pursuant
to the search warrant for a decision as to whether such samples or
specimens and articles are to returned forthwith to PPUM or to allow
the police to have continued safe custody of the same (see para 59).

Pemohon merupakan ibu kepada Kugan a/l Anathan (‘si mati’) yang meninggal dunia semasa dalam tahanan polis pada 21 Januari 2009. Pemohon tidak berpuas hati dengan laporan bedah siasat si mati yang dilakukan oleh Hospital Serdang. Kemudiannya, pemohon meminta Pusat Perubatan Universiti Malaya (‘PPUM’) menjalankan bedah siasat kedua ke atas si mati. PPUM bersetuju tetapi pada 6 April 2009 pihak polis menggeledah Jabatan Patologi PPUM berikutan dengan waran geledah yang dikeluarkan oleh Mahkamah Majistret Petaling Jaya (‘Mahkamah Majistret PJ’) pada hari yang sama. Pihak polis menyita dokumen-dokumen, barangan  [*864] dan sampel-sampel beberapa bahagian tubuh si mati (‘sampel-sampel tersebut’) yang disimpan oleh doktor forensik di PPUM. Pemohon menyatakan bahawa sampel-sampel tersebut perlu dihantar ke sebuah makmal di Australia untuk ujian toksikologi sebelum bedah siasat kedua ke atas si mati boleh disempurnakan. Pada 12 Ogos 2009 pemohon telah memohon untuk semakan waran geledah tersebut yang dikeluarkan oleh Mahkamah Majistret PJ. Pemohon berhujah bahawa (i) pihak polis seharusnya menggunapakai s 51 Kanun Prosedur Jenayah (‘KPJ’) sebelum menggunakan waran geledah; (ii) bedah siasat kedua tersebut dimohon dan dibayar oleh keluarga si mati; (iii) waran geledah tersebut telah dikeluarkan secara salah kerana bedah siasat kedua masih lagi belum selesai; dan (iv) tugas seorang majistret mengeluarkan waran geledah tersebut merupakan fungsi kehakiman dan bahawa majistret tersebut telah khilaf apabila mengeluarkan waran geledah tersebut. Walau bagaimanapun, pendakwa raya menyatakan, antara lain, (i) bahawa waran geledah bertarikh 6 April 2009 tersebut dikeluarkan berikutan dengan s 54(1)(a) KPJ; (ii) bahawa waran geledah tersebut telah dilaksana dan digunakan menurut tempoh terhad yang dikenakan ke atas waran geledah tersebut; (iii) permohonan pemohon dibuat di bawah s 413 KPJ dan oleh itu penyitaan oleh pihak polis berikutan dengan waran geledah tersebut telah dilaporkan kepada majistret; dan (iv) bahawa PPUM merupakan pemilik yang sah dan sepatutnya untuk dipohon bagi pemulangan kesemua sampel yang disita di bawah waran geledah tersebut. Telah direkodkan di Mahkamah Majistret PJ bahawa waran geledah di bawah s 54(1)(a) KPJ ditandatangani oleh Pendaftar Mahkamah Sesyen Petaling Jaya (‘pendaftar’) pada 6 April 2009. Permohonan pihak polis untuk waran geledah tersebut ditujukan kepada Mahkamah Majistret PJ. Saman tersebut diserahkan kepada Ketua Pengarah PPUM dan seorang doktor agar menyerahkan dokumen-dokumen yang dipohon oleh pihak polis. Walau bagaimanapun, PPUM dan doktor tersebut gagal mematuhi kehendak saman tersebut atas alasan bahawa dokumen-dokumen tersebut merupakan dokumen-dokumen yang dilindungi. Pihak pendakwaan kemudiannya memohon waran geledah tersebut di bawah s 54(1)(a) KPJ.

Diputuskan, membenarkan sebahagian permohonan:
(1)   Tiada rekod yang menunjukkan bahawa Majistret Kelas Pertama PJ telah
melaksanakan fungsi kehakimannya di bawah s 54(1)(a) KPJ, bagi
memutuskan sama ada wujudnya alasan untuk mempercayai bahawa saman di
bawah s 51 KPJ tidak dipatuhi. Pendaftar yang telah menandatangani
waran geledah tersebut telah bertindak dalam kapasitinya sebagai
majistret kelas kedua dan oleh itu, mempunyai kuasa untuk mengeluar dan
menandatangani suatu waran geladah di bawah s 83(b) bersama dengan s
83(a) Akta Mahkamah Rendah 1948 (lihat perenggan 26 & 33).
[*865]
(2)   Pendaftar tersebut telah melaksanakan dengan sepatutnya fungsi
kehakimannya sebagai seorang majistret kelas kedua di bawah s 54(1)(a)
KPJ. Pendaftar tersebut telah mengaplikasikan minda kehakimannya ke
atas permohonan pihak polis sebelum memutuskan untuk mengeluarkan waran
geledah tersebut kerana beliau menambah dua syarat ke atas waran
geledah tersebut iaitu; (i) penggeledahan dan penyitaan haruslah
dilaksanakan dalam masa tiga hari dari 6 April 2009; dan (ii) setelah
penggeledahan tersebut pihak polis harus mengemukakan kesemua barangan
yang disita ke hadapan mahkamah majistret. Permohonan untuk semakan
ditolak kerana perintah pendaftar mengeluarkan waran geledah tersebut
adalah betul, sah dan wajar (lihat perenggan 36–37).
(3)   Seksyen 413 KPJ yang digunapakai oleh pihak pendakwaan tidak terpakai
dalam situasi kes ini. Pihak pendakwaan khilaf dalam hujahannya yang
menyatakan bahawa barangan dalam kes ini telah dilaporkan kepada
majistret yang mana kemudiannya mengarahkan pihak polis menyimpan
barangan tersebut sehingga siasatan sempurna. Walau bagaimanapun, tiada
bukti bahawa majistret telah memerintahkan pihak polis untuk menyimpan
barangan yang telah disita tersebut direkodkan (lihat perenggan 38).
(4)   Adalah jelas bahawa pihak polis tidak mematuhi kehendak waran geledah
yang ditandatangani oleh pendaftar tersebut untuk menggeledah dan ‘
produce the same forthwith before the Magistrate’s Court’. Fakta-fakta
menunjukkan bahawa dalam masa dua hari penggeledahan tersebut iaitu 8
April 2009, seorang pegawai polis telah memaklumi pendaftar tersebut
akan tindakannya tetapi dia tidak mengemukakan kesemua barangan
tersebut ke mahkamah majistret. Adalah disahkan bahawa barangan yang
disita tidak dikemukakan ke mahkamah majistret. Pegawai polis berkenaan
telah memulangkan waran geledah tersebut bersama dengan laporan-laporan
polis berikutan dengan syarat-syarat di bahagian akhir yang dinyatakan
dalam waran geledah tersebut. Walau bagaimanapun, pegawai polis
tersebut gagal mematuhi syarat-syarat paling kritikal atau penting
dalam waran geledah tersebut, iaitu untuk mengemukakan kesemua barangan
yang disita ke hadapan mahkamah majistret dalam masa tiga hari dari
tarikh penggeledahan dan penyitaan iaitu 6 April 2009. Oleh itu, pihak
polis telah bertindak bertentangan dengan syarat-syarat dalam saman
tersebut (lihat perenggan 48–49).
(5)   Pemohon mempunyai locus standi apabila memohon sampel-sampel bahagian
tubuh si mati memandangkan dia merupakan ibu kepada si mati.
Sampel-sampel bahagian tubuh tersebut adalah milik anak lelaki pemohon
yang telah meninggal dunia. Kesemua dokumen atau barangan yang disita
adalah berkaitan dengan bedah siasat kedua si mati  [*866] dan
pemohon bukannya memohon agar barangan disita tersebut dipulangkan
kepadanya. Pemohon memohon agar sampel-sampel dan barangan yang disita
tersebut dipulangkan kepada Jabatan Patologi, PPUM bagi membolehkan
prosedur bedah siasat kedua tersebut sempurna dan mengeluarkan laporan
bedah siasat si mati kepada pemohon (lihat perenggan 57).
(6)   Pihak polis harus mengemukakan ke mahkamah majistret di hadapan seorang
majistret kelas pertama kesemua sampel atau spesimen dan barangan yang
disita berikutan dengan waran geledah tersebut bagi suatu keputusan
sama ada sampel-sampel atau spesimen-spesimen dan barangan tersebut
harus dipulangkan kepada PPUM atau pihak polis dibenarkan terus
menyimpannya (lihat perenggan 59).

Notes
For a case on requirements of search warrant, see 5(2) Mallal’s Digest (4th Ed, 2007 Reissue) para 3252.
For cases on application for revision, see 5(2) Mallal’s Digest (4th Ed, 2007 Reissue) paras 3106–3117.

Cases referred to
Chong Chieng Jen v Mohd Irwan Hafiz bin Md Radzi & Anor [2009] 8 MLJ 364, HC
Ghani v Jones [1970] 1 QB 693
Kah Wai Video Ipoh Sdn Bhd, Re [1987] 2 MLJ 459, HC
Melicio Fernandis v Mohan Nair (SB) AIR 1966 Goa 23; 1966 Cr LJ 1258

Legislation referred to
Criminal Procedure Code ss 20, 51, 51(1), (2), 52(1), 54, 54(1), (1)(a), (b), (c), 57(2), 413
Criminal Procedure Code [IND] s 93(1)(a)
Subordinate Courts Act 1948 ss 77(1), 82, 83, 83(a), (b), 88, 92, Fourth Schedule

N Surendran (T Naraendran and M Manogaran with him) (Edwin Lim Suren & Soh) for the applicant.
Noorin Badaruddin (Tuan Isa bin Hassim and How May Ling with her) (Deputy Public Prosecutor, Attorney General’s Chambers) for the respondent.

Yeoh Wee Siam JC:

APPLICATION

[1] On 12 August 2009 N Indra a/p P Nallathamby (‘the applicant’) made an application by letter (‘the application’) through her solicitors, Messrs  [*867] Edwin Lim Suren & Soh for a revision of the search warrant issued by the Petaling Jaya Magistrate’s Court (‘the PJ Magistrate’s Court’).

BRIEF FACTS

[2] Briefly, the facts as given by the applicant are as follows:

[3] The applicant is the mother of Kugan a/l Anathan (‘Kugan’ or ‘the deceased’) who died while under police custody on 21 January 2009.

[4] The applicant was dissatisfied with the first post mortem report on Kugan which was given pursuant to a post mortem conducted by the Serdang Hospital.

[5] The applicant then requested Pusat Perubatan Universiti Malaya (‘PPUM’) to conduct a second post mortem on Kugan, and which PPUM agreed to do so.

[6] On 6 April 2009, the police conducted a search on the Department of Pathology in PPUM following a search warrant that was issued by the PJ Magistrate’s Court on the same day.

[7] During the search, the police seized, under the search warrant, documents, articles and samples or specimens of body parts of Kugan (‘the samples’) which were kept by the forensic doctor, Dr Prashant N Sambekar (‘Dr Prashant’) at PPUM.

[8] The applicant informed the court that the samples were required to be sent to a laboratory in Australia for toxicology tests before the second post mortem report on Kugan could be completed.

[9] Upon receiving the above application, I called for the records of the PJ Magistrate’s Court regarding the matter.

[10] The application was fixed for hearing before me on 4 September 2009. On that day, the attorney general’s chambers applied for a postponement on the ground that they were just notified by the Selangor State Deputy Public Prosecutor of the application two days before the hearing. I allowed an adjournment and fixed the application for hearing on 11 September 2009. On the application of learned counsel for the applicant on 4 September 2009, I also gave a court order directing the police concerned to preserve the specimens seized and to keep them in safe custody.

[*868] THE APPLICANT’S GROUNDS FOR REVISION

[11] Learned counsel for the applicant submitted, inter alia, as follows:

(a)   The police should have used s 51 of the Criminal Procedure Code (‘the
CPC’) first before applying for the search warrant.

(b)   The second post mortem was requested, and paid for by Kugan’s family.
The police did not have a right to seize the results of the second post
mortem by a search warrant which should not have been issued in the
first place.

(c)   The search warrant was wrongly issued since the second post mortem had
not been completed yet. The seizure has resulted in the second post
mortem report not being completed.

(d)   The function of the magistrate in issuing the search warrant is a
judicial function and the magistrate had erred in issuing the search
warrant.

REPLY SUBMISSIONS OF THE DEPUTY PUBLIC PROSECUTOR (‘THE DPP’)

[12] Briefly, the learned DPP, on behalf of the public prosecutor, submitted, inter alia, as follows:

(a)   The search warrant dated 6 April 2009 has been issued under s 54(1)(a)
of the CPC. Section 54 confers wide powers to a court when issuing
search warrants.

(b)    Section 57(2) of the CPC provides that every search warrant shall
remain in force for a reasonable number of days specified in the search
warrant. The search warrant had already been executed and spent
according to the limitation period imposed on the search warrant.
Therefore, the application for an order that the search warrant be
quashed and/set aside is therefore academic and no longer a living
issue to be decided by the High Court.

(c)   The application made by the applicant is one made under s 413 of the
CPC. The property seized by the police pursuant to the search warrant
had been reported to the magistrate. The magistrate’s court rightly
ordered that the police were to hold the property since investigation
is not over.

(d)   Only the rightful party to the application proceedings can apply under
s 413 of the CPC to the magistrate for the police to deliver possession
of the things. Here, the PPUM is the legitimate and appropriate owner
to apply for the return of the documents, photographs and other
materials seized under the search warrant. The applicant cannot appear
[*869] on behalf of PPUM when PPUM has not made any formal claim
of possession of the materials seized. The applicant cannot apply for
an order that the articles seized be returned to the Department of
Pathology of PPUM when PPUM is not a party to the application.

FINDINGS AND DECISION

[13] The PJ Magistrate’s Court records showed that a search warrant, using Form 8 under s 54(1)(a) of the CPC, was signed by the registrar of the PJ Sessions Court (‘the registrar’) on 6 April 2009 on the basis of a letter of application dated 6 April 2009 signed by ASP Mohd Marzukhi bin Mohd Mokhtar (‘ASP Marzukhi’), Pegawai Penyiasat Kanan Jenayah, on behalf of the Head of the Criminal Investigation Department, Selangor (‘the application by the police’). The application by the police for a search warrant to be issued was addressed to the magistrate of the PJ Magistrate’s Court. In the application by the police, it was stated that a post mortem (A26/09) was conducted by Dr Prashant at PPUM on 25 January 2009. The police required a search warrant to search the premises of PPUM and the Forensic Department there to obtain certain items which were required for investigations regarding Kugan’s death in connection with the police report, USJ 8 Rpt: 764/09. In the annexure to the application, the police listed the items required for further and more effective investigation as follows:

(a)   Samples for histopathology tests

70 body parts of the deceased Kugan were listed here.

(b)   Samples for toxicology and/or drug tests

(i)   blood;

(ii)  urine;

(iii)  stomach contents;

(iv)  urine for myoglobinuria.

(c)   Photographs

(i)   original CD of photographs recorded;

(ii)  memory card of photographs recorded.

(d)   Record

(i)   original draft of the record of post mortem A26/09 (in
handwriting).

[*870]

[14] ASP Marzukhi made four police reports on 6 April 2009 regarding the results of the search made under the search warrant and the items seized ie Pantai Rpt No 003375/09, 003380/09, 003385/09 and 003391/09.

[15] The two main sections governing the issue of a search warrant in this application are s 51 and 54(1) of the CPC.

[16] Section 51(1) and (2) of the CPC provide as follows:

51 Summons to produce document or other things

(1)   Whenever any Court or police officer making a police
investigation considers that the production of any property or
document is necessary or desirable for the purposes of any
investigation, inquiry, trial or other proceeding under this Code
by or before that Court or officer, such Court may issue a
summons or such officer a written order to the person in whose
possession or power such property or document is believed to be
requiring him to attend and produce it or to produce it at the
time and place stated in the summons or order.

(2)   Any person required under this section merely to produce any
property or document shall be deemed to have complied with the
requisition if he causes the property or document to be produced
instead of attending personally to produce the same.

[17] Section 54(1) of the CPC provides as follows:

54 When search warrant may be issued

(1)   Where ––

(a)   any Court has reason to believe that a person to whom a
summons under section 51 or a requisition under subsection
52(1) has been or might have been addressed will not or
would not produce the property or document as required by
the requisition;

(b)   that property or document is not known to the Court to be
in the possession of any person; or

(c)   the Court considers that the purposes of justice or of any
inquiry, trial or other proceeding under this Code will be
served by a general search or inspection,

(c)   the Court may issue a search warrant and the person to whom that
warrant is directed may search and inspect in accordance with the
warrant and the provisions herein contained.

[*871]

[18] The search warrant in this case was issued under s 54(1)(a) of the CPC, and the prosecution in its submissions has confirmed it. However, reading both s 51 and s 54 of the CPC together, I agree with learned counsel’s submission that s 51 of the CPC must be applied first before resorting to the use of s 54(1)(a) of the CPC. The law envisages that even before the police can be granted a search warrant to conduct any search in any private premise, first of all, the police officer making a police investigation must apply to the court for a summons, or issue an order to any person to produce any property or document. Such person shall be deemed to have complied with the summons under s 51(2) of the CPC if he produces or cause to produce such property or document. From the affidavit of ASP Marzhuki affirmed on 14 September 2009 and filed in this court on 16 September 2009 (‘the affidavit’), it is confirmed that before ASP Marzhuki applied for a search warrant under s 54(1)(a) of the CPC, he did serve a summons under s 51(1) of the CPC to the Director-General of PPUM to supply the documents required (see exh MM-2(b) of the affidavit). He also served an order to produce documents under s 51 of the CPC to Dr Prashant (see exh MM-2(d) of the affidavit). Unfortunately, the PPUM and Dr Prashant did not comply within such summons or order to produce on the ground that the documents required are privileged documents under the law relating to evidence (see exhs MM-3(a), MM-3(b) and MM-3(c) of the affidavit). That was why ASP Marzhuki later applied for the search warrant under s 54(1)(a) of the CPC.

[19] A search warrant can only be issued under s 54(1) of the CPC under any of the three circumstances stated in paras (a)–(c) of the same section.

[20] For the purpose of this case, it is clear that only s 54(1)(a) of the CPC is relevant. The learned DPP has also confirmed that the search warrant in this case was issued under s 54(1)(a) of the CPC.

[21] Section 54(1)(a) only applies if the court has ‘reason to believe’ that the person required by the summons under s 51 or a requisition under s 52(1) of the CPC would not produce the property or document.

[22] When the application for the search warrant was made to the PJ Magistrate’s Court, the application must be brought before the magistrate for him to decide whether the court has ‘reason to believe’ that the person under s 51 of the CPC would not produce the property or document. This is a judicial function, as submitted by learned counsel, and such function must be exercised only by the magistrate.

[23] In Melicio Fernandis v Mohan Nair (SB) AIR 1966 Goa 23; 1966 Cr LJ 1258 at pp 1258 and 1260 it is stated:

[*872]

The issue of search warrant is normally the judicial function of the
magistrate. The words ‘reason to believe’ coupled with other words
contemplate an objective determination based on intelligent care and
deliberation involving judicial review as distinguished from a purely
subjective consideration. This function being judicial, it necessarily
follows that the magistrate has to apply his mind judicially …

The main reason for setting aside the order are (i) that it discloses
no reason; (ii) that the learned magistrate did not ascertain whether
there was sufficient material to justify the issue of search warrant
which, it seems, was issued automatically for the mere asking; and
(iii) that except for the bare statement of the complainant no other
particulars of criminal breach of trust were given.

[24] In Sohoni’s The Code of Criminal Procedure, 1973 (18th Ed) at p 386, in relation to s 93(1)(a) of the Indian Code of Criminal Procedure which is in pari materia with s 54(1)(a) of the Malaysian CPC, inter alia, it is stated:

It is a condition precedent to the issue of a search warrant under
clause (a) of subsection (1) that the Court must have reason to believe
that the person against whom the search warrant is issued is not likely
to produce the document or thing in his possession as required by a
summons on order under section 91 or a requisition under section 92(1),
served upon him. It is the duty of the Court in the first instance to
consider if a summons to produce would not have the desired effect…

… The Magistrate must apply his judicial mind to the question and must
satisfy himself that the issue of the warrant is necessary and that the
requirements of the law for the issue of the warrant are present. He
must see whether there are sufficient materials before him to justify
the drastic action which he is invited to take. When it appears that a
Magistrate has not applied his mind in this way and when it appears
that action has been taken on insufficient material, the search warrant
is illegal and the High Court will interfere.

[25] In Chong Chieng Jen v Mohd Irwan Hafiz bin Md Radzi & Anor [2009] 8 MLJ 364, the High Court stated as follows:

… there is no compromise that there must be credible information before
a magistrate issues the warrant or in the absence of such information
then ‘reason to believe’ that incriminating evidence connected to an
offence is to be found in the place stipulated in the warrant …. The
requirement for ‘information’ and ‘reason to believe’ is mandatory
because the execution of the warrant will definitely result in the
invasion of the privacy and property of the owner of the premises so
named …

… the magistrate concerned must ensure that the information laid before
him is one which possessed credibility and ‘reason to believe’ means
good and cogent reasons which supports the belief that incriminating
evidence of an offence would be found in the premises stated in the
warrant.

[*873]

[26] In the present case, there is nothing on record to show that the PJ First Class Magistrate exercised his judicial function under s 54(1)(a) of the CPC, to decide whether there was any ‘reason to believe’ that the summons under s 51 of the CPC has not been complied with. In fact, there is no record at all to prove that the PJ First Class Magistrate issued the search warrant under s 54(1)(a) of the CPC.

[27] The records show that it was the registrar who signed the search warrant. The question that arose now is whether the registrar has the power to issue and sign the search warrant.

[28] By virtue of s 77(1) and the Fourth Schedule of the Subordinate Courts Act 1948 (‘the SCA’), the registrar of the subordinate court is an ex officio second class magistrate.

[29] The powers of a registrar, acting in his capacity as a second class magistrate, are provided in ss 82 and 83 of the SCA which read as follows:

82 General powers and jurisdiction of Magistrates’ Courts and
Magistrates

A Magistrates’ Court constituted under this Act shall, for all
purposes, be deemed to be the Court of a First Class Magistrate, and
shall have all the powers and jurisdiction conferred on a First Class
Magistrate by this Act or any other written law, and any Magistrate of
either class within the local limits of whose jurisdiction the Court is
situate may exercise the powers and jurisdiction of the Court:

Provided that a Second Class Magistrate shall not hold any
preliminary inquiry or proceed to the final trial and
determination of any cause or matter which is not within the
jurisdiction conferred upon him by section 88 or section 92 or by
any other written law.

83 Preliminary process and interlocutory orders

Without prejudice to the generality of section 82 or to section 5 ––

(a)   any summons, writ, warrant or other process, whether civil or
criminal, issued by a Magistrates’ Court may be signed by a
Magistrate of either class within the local limits of whose
jurisdiction the Court is situate notwithstanding that it is or
was not within the competency of the Magistrate to try and
determine the cause or matter to which the summons, writ, warrant
or other process relates;

(b)   in any cause or matter, whether civil or criminal, before a
Magistrates’ Court any Magistrate of either class within the
local limits of whose jurisdiction the Court is situate may make
any interlocutory or interim order not involving the final trial
and determination of the cause or matter including, but without
prejudice to the generality of  [*874] the foregoing,
orders relating to adjournments, remands and bail, execution of
judgments and decrees, and transfers of proceedings to Sessions
Courts.

[30] For the purpose of this case, from a reading of s 82 of the SCA, it is clear that a second class magistrate’s jurisdiction is only limited to the jurisdiction conferred upon him by ss 88 or 92 of the SCA. Section 92 has no relevance to this case since it governs the civil jurisdiction of a second class magistrate. Section 88 empowers the second class magistrate to try offences punishable with imprisonment not exceeding 12 months or which are punishable with fine only. Nowhere in s 82 or 88 of the SCA does it provide the second class magistrate with the power to issue a search warrant.

[31] Section 83(a) of the SCA provides for a warrant, inter alia, to be signed by a magistrate of either class. It does not provide the power to issue a warrant.

[32] Section 83(b) of the SCA gives the power to a magistrate of either class to make any interlocutory or interim order for any civil or criminal matter.

[33] In my opinion the registrar, acting in her capacity as a second class magistrate, is empowered to issue and sign a search warrant under s 83(b) read together with s 83(a) of the SCA.

[34] The records show that the registrar considered the application made by the police for the search warrant on 6 April 2009. Such application stated the reason for the application ie the police were investigating the death of Kugan based on the police report, USJ 8 Rpt: 764/09, where Kugan died in police custody on 20 January 2009 after being detained by the police on 14 January 2009 for theft of luxury cars in connection with USJ Rpt: 298/09. The police in the application informed the PJ Magistrate’s Court that Dr Prashant of PPUM had conducted a post mortem (A26/09) on the deceased, Kugan, and several samples had been taken from the body of the deceased to ascertain the cause of death of the deceased. The police also stated that the samples and original record of A26/09 and the CD of the original photographs which were recorded together with the memory card were required by the police for more thorough and effective investigations. The samples required were all listed in the annexure to the application for the search warrant.

[*875]

[35] The registrar then issued the search warrant under s 54(1)(a) of the CPC on the ground that there was reason to believe that the PPUM and Dr Prashant would not produce the documents or property required.

[36] I found that the registrar did exercise the judicial function of a second class magistrate under s 54(1)(a) of the CPC properly. She did apply her judicial mind to the application by the police before deciding to issue the search warrant. This is evidenced by the fact that she imposed two additional conditions on the police in the search warrant ie:

(a)   the search and seizure must be conducted within three days from 6 April
2009; and

(b)   after the search and seizure the police were to produce forthwith all
articles seized before the magistrate’s court.

[37] Therefore, I was satisfied that the registrar’s order in issuing the search warrant was correct, legal and proper. That being the case, there was no justification for me to exercise my revisionary powers under Chapter XXXI of the CPC. Accordingly, I dismissed the application for revision.

[38] Section 413 of the CPC, which was cited and relied upon by the prosecution does not apply to the situation in this case. Section 413 of the CPC only applies where there is property seized under s 20 of the CPC or which were suspected to have been stolen or found under suspicious circumstances ie where goods are seized by the police from a person arrested and such property is reported to the magistrate for an order for delivery of the property to the person whom the magistrate thinks fit to take delivery of the same. With respect, the prosecution also erred in its submissions to state that the property in this case had been reported to the magistrate who then ordered the police to hold the property until investigation is over. On record, there was no proof that the magistrate had ordered the police to hold the property seized. That was why on the first date of the hearing of the application, on 11 September 2009, I had ordered the prosecution to file an affidavit of ASP Marzukhi on the matter or show proof that there was such order given by the magistrate.

[39] Regarding the learned DPP’s submission that the search warrant was already spent after its execution on 6 April 2009, I found that certain conditions in the search warrant had yet to be complied with by the police.

[40] The search warrant in Form 8 issued under s 54(1)(a) of the CPC, and addressed to ASP Marzukhi, inter alia, states as follows:

[*876]

Whereas information has been laid [or complaint has been made] before
me of the commission [or suspected commission] of the offence of 302
KK and it has been made to appear to me that the production of the
articles specified in the Schedule below is essential to the enquiry
now being made [or about to be made] into the said offence [or
suspected offence]: spt di lampiran ms 1–3.

This is to authorise and require you within the space of 3 days from
the date hereof to search for the said articles specified in the
Schedule below in the Pusat Perubatan Universiti Malaya, Lembah Pantai,
59100 KL (describe the house or place, or part thereof, to which the
search is to be confined), and, if found to produce the same
immediately before the Magistrate’s Court; returning this warrant, with
an indorsement certifying what you have done under it, immediately upon
its execution
. (Emphasis added.)

[41] From the above wording in the search warrant, it is clear that the police are required to produce forthwith before the magistrate’s court whatever property or document, that is listed in pp 1–3 of the annexure to the application by the police for the search warrant, that has been searched and seized from the PPUM. However, this was not done.

[42] ASP Marzukhi in his affidavit disclosed that after executing the search warrant, and after seizure of the samples of blood, urine and stomach contents of the deceased, he had ordered to be sent on 6 April 2009 at 2.17pm such samples to the Jabatan Kimia Malaysia in Petaling Jaya for toxicology tests to trace the presence of alcohol, blood and poison and to trace myoglobin contents (see para 12 of the affidavit).

[43] On the same day at 3.45pm ASP Marzukhi was informed that the test to trace myoglobin contents could not be done by the Jabatan Kimia Malaysia. So ASP Marzukhi directed his officer to take back the urine samples and send them to the Institute for Medical Research (‘IMR’) (see para 13 of the affidavit).

[44] ASP Marzukhi, in his affidavit, confirmed that the whole search and seizure process was completed on 6 April 2009 at about 4.30pm. The articles seized were brought back to his office in IPPD Petaling Jaya (see para 14 of the affidavit).

[45] On 8 April 2009 at about 9.50am, ASP Marzukhi informed the registrar of the actions that he had taken and he returned the search warrant together with the police reports that he had made (see para 17 of the affidavit).

[*877]

[46] Subsequently ASP Marzukhi received the reports on the samples from Jabatan Kimia Malaysia and IMR on 21 April 2009 and 24 April 2009 respectively (see paras 18 and 19 of the affidavit).

[47] At the time of the affirmation of the affidavit by ASP Marzukhi, the samples and all articles seized were in the custody of the police except the urine samples which had been sent again to IMR for further police investigation (see para 20 of the affidavit).

[48] From ASP Marzukhi’s affidavit, it is clear that he did not comply with the requirement in the search warrant signed by the registrar ie within three days from 6 April 2009 to search and ‘produce the same forthwith before the magistrate’s court’. The facts showed that within two days of the seizure ie on 8 April 2009, ASP Marzukhi informed the registrar of his actions but he did not produce all the items before the magistrate’s court. An inquiry by my senior assistant registrar with the registrar’s office also confirmed that the articles seized were not produced before the magistrate’s court. ASP Marzukhi did return the search warrant together with the police reports in compliance with the last part of the conditions stated in the search warrant. However, he failed to comply with the most critical or material part of the conditions in the search warrant ie to produce all articles seized before the magistrate’s court within three days from the search and seizure on 6 April 2009.

[49] The police, by not producing the articles seized before the magistrate, had acted in contravention of the conditions in the summons.

[50] In Re Kah Wai Video Ipoh Sdn Bhd [1987] 2 MLJ 459, Edgar Joseph Jr J spelt out very clearly the common law position regarding police powers on search and seizure:

As regards the common law extension of police powers to seize articles
which do not fall within the precise limits of the search warrant
issued, I find support in the following passages in the judgment of
Denning MR in Ghani v Jones [1970] 1 QB 693 at pp 708–709:

What is the principle underlying these instances? We have to
consider, on the one hand, the freedom of the individual. His
privacy and his possessions are not to be invaded except for the
most compelling reasons. On the other hand, we have to consider
the interest of society at large in finding out wrongdoers and
repressing crime. Honest citizens should help the police and not
hinder them in their efforts to track down criminals. Balancing
these interests, I should have thought that, in order to justify
the taking of an article, when no man has been arrested or
charges, these requisites must be satisfied
:

[*878]

First: The police officers must have reasonable grounds for
believing that a serious offence has been committed — so
serious that it is of the first importance that the
offenders should be caught and brought to justice.

Second: The police officers must have reasonable grounds
for believing that the article in question is either the
fruit of the crime (as in the case of stolen goods) or is
the instrument by which the crime was committed (as in the
case of the axe used by the murderer) or is material
evidence to prove the commission of the crime (as in the
case of the car used by a bank raider or the saucer used by
the criminals in the Great Train robbery).

Third: The police officers must have reasonable grounds to
believe that the person in possession of it has himself
committed the crime, or is implicated in it, or is
accessory to it, or at any rate his refusal must be quite
unreasonable.

Fourth: The police must not keep the article, nor prevent
its removal, for any longer than is reasonably necessary to
complete their investigations or preserve it for evidence.
If a copy will suffice, it should be made and the original
returned. As soon as the case is over, or it is decided not
to go on with it, the article should be returned
.

Finally: The lawfulness of the conduct of the police must
be judged at the time and not by what happens afterwards.

(Emphasis added.)

[51] In Archibald on Pleading, Evidence and Practice in Criminal Cases, (42nd Ed) at p 1133, in relation to the execution of a search warrant, it is, inter alia, stated:

(2)   The police must not keep the article or prevent its removal for
any longer than is reasonably necessary to complete their
investigations or to preserve it as evidence.

[52] In this case, from 6 April 2009 until the date of hearing of this application on 11 September 2009, and the date for decision of this court on the application on 2 October 2009, the police had not complied with the magistrate court’s order as contained in the search warrant ie to produce the articles seized forthwith before the magistrate.

[53] On 11 September 2009 when she was asked by the court as to how long the police intended to keep the samples and articles seized, the learned DPP informed the court that she did not know since it was an investigation matter within the jurisdiction of the police.

[*879]

[54] On 2 October 2009, just before this court delivered its decision on the application, the learned DPP updated the court that since on the day before ie 1 October 2009, a police officer had already been charged in the sessions court for the offence committed against the deceased, the police would continue to keep all samples and articles seized for the purpose of using them as exhibits in the prosecution proceedings.

[55] Learned counsel for the applicant informed the court that the charging of the police officer does not made any difference to this application since the court still has to decide on the question whether the search warrant was properly issued. In any case, the applicant was not satisfied with the fact that only one police officer was charged for the particular offence. Therefore, the applicant would still pursue the matter and would want the samples to be sent to Australia for tests.

[56] The submissions of the prosecution that the search warrant has already been spent do not hold water. Clearly, the search warrant is still valid and alive considering that the police have yet to comply with the remaining part of the order contained in the search warrant about producing forthwith the articles seized before the magistrate’s court.

[57] Regarding the prosecution’s submission that it should be the PPUM, who are the owners of the articles seized, who should make this application and claim the articles, and not the applicant, I am of the view that the applicant has locus standi since she is the mother of the deceased. The samples of the body parts belong to the applicant’s deceased son. All other documents or articles seized relate to the second post mortem of the deceased. The applicant is not seeking that the articles seized be returned to her. She is only applying for the samples and articles seized to be returned to the Department of Pathology, PPUM, so that PPUM can complete the second post mortem procedures and issue the final post mortem report on the deceased for the applicant. After all, the applicant is the one who applied to the PPUM in the first place for the second post mortem to be conducted.

[58] Since the police had not complied with the condition contained in the search warrant that upon search of the PPUM premises and seizure of the samples and articles, the police are to produce the same forthwith before the magistrate’s court, I ordered that there should be such compliance.

[59] Accordingly, on 2 October 2009, I ordered that on 9 October 2009, the police are to produce before the magistrate’s court, before a first class magistrate, all samples or specimens and articles seized pursuant to the search warrant for a decision as to whether such samples or specimens and articles are to be returned forthwith to the PPUM or to allow the police to have  [*880] continued safe custody of the same for use later as exhibits in the prosecution proceedings regarding the police officer charged on 1 October 2009 for the offence in relation to the deceased’s death.

ORDER:
Application allowed in part.

LOAD-DATE: 01/27/2010

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