HIS DOCUMENT I S THE PROPERTY OP HIS BRITANNIC MAJESTY'S GOVERNMENT)
S E C R E T
C . P . (U-Q) Uk
COPY NO.
'
2ND JULY, 19U-8
CABINET
CRIMINAL JUSTICE B I L L :
CAPITAL PUNISHMENT
Memorandum Joy t h e Home S e c r e t a r y
The a t t a c h e d d r a f t o f a c l a u s e t o h e i n s e r t e d i n
t h e C r i m i n a l J u s t i c e B i l l on t h e s u b j e c t of t h e d e a t h p e n a l t y
h a s b e e n d i s c u s s e d w i t h m e m h e r s o f t h e L a h o u r P a r t y who
r e p r e s e n t b o t h s i d e s of t h e c o n t r o v e r s y .
I t a p p e a r e d from
t h e d i s c u s s i o n t h a t t h e c l a u s e a s now d r a f t e d w o u l d h e l i k e l y
t o meet w i t h g e n e r a l a c c e p t a n c e and would he r e g a r d e d a s g i v i n g
e f f e c t i n a s a t i s f a c t o r y manner t o the compromise to which
a g r e e m e n t was g i v e n a t t h e P a r t y m e e t i n g .
2.
The c l a u s e p r o v i d e s t h a t t h e d e a t h p e n a l t y s h a l l
c o n t i n u e t o a p p l y t o m u r d e r s c o m m i t t e d -with " e x p r e s s m a l i c e '
i f s u c h m u r d e r s f a l l i n t o a n y o f t h e following
categories:­
1
( a )
murders committed in connection with c e r t a i n
specified crimes (i*e. robbery with violence,
b u r g l a r y and h o u s e - b r e a k i n g , v i o l e n t a f f r a y s by
g a n g s , u n l a w f u l u s e of e x p l o s i v e s , r a p e , sodomy
and i n d e c e n t a s s a u l t s ) j
( b )
m u r d e r s of c o n s t a b l e s a c t i n g i n t h e e x e c u t i o n
t h e i r d u t y a n d of p e r s o n s a s s i s t i n g them;
( c )
murders committed by the systematic administratic?i
of p o i s o n ( t h e word s y s t e m a t i c " h a s b e e n
i n s e r t e d f o r the p u r p o s e of e x c l u d i n g "mercy"
murders);
of
51
( d )
m u r d e r s of p r i s o n o f f i c e r s a c t i n g - i n t h e
of t h e i r d u t y a n d of p e r s o n s a s s i s t i n g
execution
them;
( e )
m u r d e r s c o m m i t t e d b y p e r s o n s who h a v e on a p r e v i o u s
occasion committed murder.
3.
The e f f e c t of t h e w o r d s i n t h e f i r s t s e n t e n c e o f
t h e c l a u s e " c o m m i t t e d w i t h e x p r e s s m a l i c e " a n d of t h e
d e f i n i t i o n of " e x p r e s s m a l i c e " i n s u b - c l a u s e ( 3 ) i s t o e x c l u d e
from t h e d e a t h p e n a l t y " c o n s t r u c t i v e " m u r d e r s where m a l i c e i s
i m p l i e d from t h e f a c t t h a t t h e k i l l i n g o c c u r r e d i n t h e c o m G
of"" a f e l o n i o u s e n t e r p r i s e , i n e x u d i n g , f o r e x a m p l e , s u c h a
c a s e a s t h a t of a b u r g l a r - g i v i n g t h e n i g h t w a t c h m a n a m e r e
p u s h w i t h t h e r e s u l t t h a t he f a l l s a n d b r e a k s h i s s k u l l .
I f , h o w e v e r , a m u r d e r w h i c h f a l l s w i t h i n one
of t h e s p e c i f i e d c a t e g o r i e s i s c o m m i t t e d w i t h " e x p r e s s m a i l
t h e n a l l a c c o m p l i c e s who a r e p a r t i e s t o t h a t m u r d e r ( i n c l u d
f o r e x a m p l e , t h e a c c o m p l i c e who k e e p s w a t c h o u t s i d e t h e
house) w i l l he s u b j e c t e d t o t h e d e a t h p e n a l t y by t h e words
s u b - c l a u s e ( 3 ) "a m u r d e r s h a l l b e deemed i n r e l a t i o n t o e v e
p e r s o n g u i l t y t h e r e o f t o "be c o m m i t t e d w i t h , e x p r e s s m a l i c e o
U.
The p r o v i s i o n r e l a t i n g t o a m u r d e r e r who h a s
c o m m i t t e d m u r d e r on a p r e v i o u s o c c a s i o n i s o p e n t o t h e
o ? j j e c t i o n t h a t i f a p e r s o n who h a s b e e n c o n v i c t e d of m u r d e r
i s v e r y s h o r t l y a f t e r w a r d s p u t on t r i a l f o r a n o t h e r murder,
t h e j u r y who w i l l h a v e r e a d n e w s p a p e r r e p o r t s of h i s
p r e v i o u s c o n v i c t i o n may h e p r e j u d i c e d .
There i s , however,
n o way of a v o i d i n g t h i s d i f f i c u l t y .
I f the p r o v i s i o n were
c o n f i n e d t o c a s e s where t h e s e c o n d murder o c c u r s a f t e r a
c o n v i c t i o n f o r m u r d e r , i t would h e of l i t t l e v a l u e , and wou
e x c l u d e from t h e d e a t h p e n a l t y s u c h m u r d e r e r s a s H e a t h or
G o r d o n Cummings, who i n 19U2 m u r d e r e d f o u r women w i t h i n a
w e e k a n d a t t e m p t e d t o m u r d e r two o t h e r s .
5.
The d r a f t c l a u s e h a s "been c a r e f u l l y c o n s i d e r e d "by
t h e f o u r Lav/ O f f i c e r s f o r E n g l a n d a n d W a l e s a n d S c o t l a n d ,
and i t has been agreed by them.
J .C * E *
Home O f f i c e ,
2nd J u l y ,
S*W.1 *?
1943.
CRIMINAL JUSTICE BILL Draft
jsndtnent
Law a s
penalty
)F m u r d e r .
1.-(1)
section,
Clause
During t h e continuance in force
of
this
no p e r s o n s h a l l h e s e n t e n c e d by a c o u r t
d e a t h f o r murder u n l e s s
indictment
it
or i n q u i s i t i o n
i s c h a r g e d i n the'­
and found b y t h e j u r y
t h e m u r d e r was c o m m i t t e d w i t h e x p r e s s m a l i c e a s
by t h i s
(a)
section,
that
and e i t h e r
described
. (Offences
or a f t e r
and i n
t h e commission
in the Schedule t o
involving death
o r an a t t e m p t
of an o f f en c
this
Act
penalty for
the
or a s s i s t i n g
custody or for
an e s c a p e from
assisting
of
the
him;
systematic
poison o r any o t h e r s i m i l a r
or noxious substance;
his
or
destructive
person
or.other institution
his duty;
of s i x
a c t i n g in the execution
or a person a s s i s t i n g
him;
t h e a c c u s e d h a s b e e n c o n v i c t e d of
c o m m i t t e d on a p r e v i o u s
tc
I 8 6 5 t o 1898 a p p l y ,
a n d t h e p e r s o n m u r d e r e d was an o f f i c e r
such i n s t i t u t i o n
an
or
which t h e P r i s o n A c t s ,
that
a
administrate
t h e m u r d e r was c o m m i t t e d b y a
detained in a prison
(e)
legal
t h e m u r d e r w a s c o m m i t t e d b y m e a n s of,
in the course
that
or
t h e p u r p o s e of o b s t r u c t i n g
d u t y or any person
(d)
avoid!
i n c o u r s e of l a w
c o n s t a b l e a c t i n g i n t h e e x e c u t i o n of
of,
or
course
p u r p o s e of r e s i s t i n g o r
o r p r e v e n t i n g an a r r e s t
escaping
murder
t o c o m m i t s u c h an o f f e n c e ;
t h e m u r d e r was c o m m i t t e d i n t h e
of o r f o r
that
define
t h e m u r d e r was c o m m i t t e d i n t h e c o u r s e c
connection with,
(c)
that
­
or immediately before
(b) t h a t
to
occasion;
of
or
murder
smsL s f e r e , b y v i r t u e o f t h i s
subsection,
a count
is
p r e l u d e d f r o m p a s s i n g s e n t e n c e of d e a t h f o r m u r d e r ,
canr-t s h a l l s e n t e n c e t h e o f f e n d e r
(2)
if
i n any i n d i c t m e n t
to imprisonment for
or i n q u i s i t i o n
* a a a i * f e a on s p r e v i o u s o c c a s i o n ,
of
be I s to be t r i e d :
in
on a r r a i g n m e n t
or- I s f a a s d g u i l t y b y t h e j u r y ,
the
the
as charges t h e murder f o r
and i f
which
he p l e a d s
the jury shall,
guilty
unless
p l e x l s g u i l t y to having been p r e v i o u s l y convicted as
he
aforesaid,
b e aSasrgeo. t o i n q u i r e w h e t h e r he h a s b e e n s o c o n v i c t e d ,
tnst
scse It
(3)
b e deesedlj
s h a l l n o t be n e c e s s a r y t o swear t h e j u r y
F o r t h e p u r p o s e s of
in relation
this
aoaa irlth I n t e n t
to k i l l
F o r t h e a v o i d a n c e of d o u b t i t
i s hereby
ox- i s - g a l s i t i o n c h a r g i n g a n y of t h e m a t t e r s
(1)
of t h i s s e c t i o n ,
t h a t those n a t t e r s are not
t h a t t h e a c c u s e d I s showi
to
death
expected
declared
indictment
specified
a n d t h e j u r y a r e of
e s t a b l i s h e d by t h e
in
opinion
evidence
by the evidence to be g u i l t y
xinx-£ier or- a n y o t h e r o f f e n c e
be
t o maim a n d i n
t h a t wfee?e a p e r s o n i s c h a r g e d w i t h m u r d e r on an
subsection
shall
the act. causing the
or with i n t e n t
in
again.
a murder
t h e l a t t e r c a s e i s an a c t w h i c h m i g h t r e a s o n a b l y b e
(lij
and
t o every person g u i l t y t h e r e o f ,
e-oxExlxtei w i t h e x p r e s s m a l i c e i f
It
section,
it
murder,
the accused s h a l l
I n s t a n c e b e a r r a i g n e d on s o much o n l y of
innie-snent or I n q u i s i t i o n
life.
f o r murder
I s etussged t h a t t h e a c c u s e d h a s b e e n c o n v i c t e d
first
the
but
of
of which a person c h a r g e d with
iDax-uer n a y l a w f u l l y b e c o n v i c t e d t h e j u r y may r e t u r n
a verdict
ox g u i l t y of m u r d e r o r of a n y s u c h o t h e r o f f e n c e
aforesaid.
(5)
Hotting in t h i s
of s e c t i o n f i f t y - t h r e e
Ant,s
H955 ( w h i c h
section
prohibits
In l i e u
thereof,
during His Majesty's
the
provisions
of t h e C h i l d r e n a n d Young P e r s o n s
the
p a s s i n g of s e n t e n c e of
a g a i n s t a p e r s o n - u n d e r t h e a g e of
the soart,
shall affect
as
eighteen years,
t o s e n t e n c e him t o b e
pleasure).
and
death
requires
detained
(6)
This section
shall
continue
in force for
a period
five
y e a r s b e g i n n i n g w i t h t h e p a s s i n g of t h i s A c t ,
and
then
expire, but without prejudice
of
p r e v i o u s l y done
to the v a l i d i t y
shall
anything
thereunder:
Provided that
if
of t h e p e r i o d a f o r e s a i d
at
any t i m e b e f o r e
an A d d r e s s , i s
M a j e s t y b y each House of p a r l i a m e n t
extended period specified
praying that
of
in the Address,
b y O r d e r i n C o u n c i l make p r o v i s i o n f o r
proviso)
the
this
section
purpose;
this
of
have e f f e c t
e x t e n d e d p e r i o d was" s u b s t i t u t e d f o r
His
time or for
that
provisions
shall
expiration
any.
H i s M a j e s t y may
where any s u c h O r d e r in C o u n c i l c o n t i n u e s
any such e x t e n d e d p e r i o d ,
the
presented to
be continued in force without l i m i t a t i o n
(including this
of
and
section
this
for
subsection
as i f
that
t h e p e r i o d of f i v e
years
aforesaid.
(7)
This section
shall
the following modifications
( a ) f o r t h e r e f e r e n c e
to p a r t
apply to Scotland,
subject
to
­
in
paragraph
(a)
of
subsection
I of t h e S c h e d u l e t o t h i s A c t
i n v o l v i n g death p e n a l t y for murder)
substituted a reference
to Part
II
(1)
(offences
there
of
shall
the
be
said
Schedule:
( b ) f o r
any r e f e r e n c e
there
to the Prison Acts,
shall be substituted
(Scotland) Acts,
to
Persons Act,
a reference
I 8 6 0 t o 190U,
section f i f t y - t h r e e
1933,
of
( c ) a n y r e f e r e n c e - t o
Prison
reference
t h e C h i l d r e n a n d Young
t h e r e s h a l l be s u b s t i t u t e d a
(Scotland)
Act,
imprisonment for
construed as a r e f e r e n c e
life;
1898,
to the
and f o r any
reference to section fifty-seven
a n d Young P e r s o n s
1865 t o
to
penal
of
the
Children
1937;
life
shall
servitude
he
for
(a)
for
t h e p u r p o s e of
establishing that
a
person
c h a r g e d w i t h m u r d e r h a s b e e n c o n v i c t e d of
c o m m i t t e d on a p r e v i o u s o c c a s i o n
of
the Criminal Procedure
shall
to
section
(Scotland)
a p p l y and such c o n v i c t i o n
p u r s u a n c e of t h a t
( e ) s u b s e c t i o n s
following
(2)
(1)
"(2)
this
it
is
deemed
admitted
or i s
provisions
proved
in
thereof;
s h a l l be i n s e r t e d
the
after
­
During the
section,
continuance in force
sections
two a n d t h r e e of
C r i m i n a l Law ( S c o t l a n d )
Act,
1829
make p u n i s h a b l e b y d e a t h c e r t a i n
violence
1887
a n d (k.) s h a l l b e o m i t t e d a n d
subsection
subsection
Act,
h e l d t o a p p l y t o him i n
section
accordance with the
sixty-six
s h a l l be
hove been found by t h e jury i f
by the accused or i s
murder
against His Majesty's
the
(which
crimes
of
subjects)
s h a l l be construed as r e q u i r i n g the
court
to
any
sentence
of t h e
a n y p e r s o n c o n v i c t e d of
crimes therein
servitude for
life."
set forth to
penal
of
S C H E D U L E
Offences
involving death
penalty for
Part
Offences
1.
An o f f e n c e
Larceny Act,
2.
or twenty-seven
b u r g l a r y and
3.
u n d e r l a w of
under s e c t i o n
under s e c t i o n
or i n f l i c t i n g
under s e c t i o n
1861,
1883
An o f f e n c e
or t h i r t y
in
the
robbery).
twenty-five,
twenty-six
1916 (which r e l a t e s
of t h e O f f e n c e s
t w e n t y of t h e
to
Offences
wounding
c o m m i t t e d by
three
twenty-eight,
against
twenty­
the Person
and o t h e r d e s t r u c t i v e
An o f f e n c e
under
against
section forty-eight
to
r a p e and i n d e c e n t
assaults
6.
under section
of t h e O f f e n c e s
Act,
substances).
t h e Offences
An o f f e n c e
Act,
c r i m e s c o m m i t t e d b y means of
of
against
sodomy a n d i n d e c e n t
t h e Person Act,
on
assaults
Offences
1861
or
fifty-two
(which
relate
females).
sixty-one
t h e Person Act,
Part
1861
or
sixty-tv/o
(which . r e l a t e
on m a l e s ) .
II
u n d e r l a w of S c o t l a n d
/
x
1.
Robbery.
2.
Theft by housebreaking or housebreaking with
steal,
or t h e f t
lock-fast
to
concert.
under s e c t i o n
(which r e l a t e t o
5.
to
of
o r s e c t i o n two of t h e E x p l o s i v e S u b s t a n c e s
explosives
to
twenty-three
186-1 ( w h i c h r e l a t e s
g r e v i o u s b o d i l y harm)
o r more p e r s o n s a c t i n g
nine
England
housebreaking).
t h e Person Act,
h.
to
of t h e L a r c e n y A c t ,
An o f f e n c e
against
I
1916 (which r e l a t e s
An o f f e n c e
murder
by opening l o c k - f a s t
places with intent
to
steal.
places
or
intent
opening
3.
Ari a s s a u l t
with i n t e n t
harm b y t h r e e o r more p e r s o n s
assault
t o do g r e v i o u s
acting together,
i n v o l v i n g t h e throwing at or a p p l y i n g
a n o t h e r of a c o r r e s i v e a c i d o r o t h e r d a n g e r o u s
c a l c u l a t e d t o burn or i n j u r e
h.
An o f f e n c e
Substances Act,
b y m e a n s of
5*
or
an
to
substance­
him.
under s e c t i o n . t w o
1883 (v/hich r e l a t e s
of t h e
Explosive
to crimes
committed
explosives).
Rape,
bodily
sodomy o r i n d e c e n t
assault.