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( T H I S D O C U M E N T IS T H E P R O P E R T Y O F H E R B R I T A N N I C M A J E S T Y ' S
GOVERNMENT)
SE C RE T
C , P . ( 5 6 ) 27 20th January,
COPY NO.
'1
i
1956
CABINET
A M E N D M E N T O F T H E LAV/ R E L A T I N G T O M U R D E R
M e m o r a n c l u r n b y t h e S e c r e t a r y of S t a t e f o r t h e H o m e
" d e p a r t m e n t and M i n i s t e r for W e l s h Affairs
My colleagues will r e c a l l that t h e r e a r e c e r t a i n s e c o n d a r y
r e c o m m e n d a t i o n s of the R o y a l C o m m i s s i o n on C a p i t a l P u n i s h m e n t w h i c h
w o u l d r e q u i r e l e g i s l a t i o n a n d o n w h i c h , s i n c e w e w e r e n o t d i s p o s e d to
l e g i s l a t e to g i v e effect to the m a i n r e c o m m e n d a t i o n s , we h a v e n o t
h i t h e r t o thought it n e c e s s a r y to take a decision.
The principal
r e c o m m e n d a t i o n s in this c a t e g o r y a r e that ­
( a )
t h e d o c t r i n e of c o n s t r u c t i v e m a l i c e s h o u l d b e a b o l i s h e d
s u b j e c t to a p r o v i s o r e l a t i n g to a c c o m p l i c e s ;
( b )
the l a w r e l a t i n g to p r o v o c a t i o n s h o u l d b e a m e n d e d so
that provocation by w o r d s alone m a y r e d u c e m u r d e r
to m a n s l a u g h t e r ;
( c )
a p e r s o n who aids, abets o r instigates suicide
b e g u i l t y of t h a t o f f e n c e a n d n o t of m u r d e r .
should
2.
T h e r e i s i n m y v i e w n o o b j e c t i o n i n p r i n c i p l e to t h e s e
r e c o m m e n d a t i o n s , b u t a s I s a i d i n p a r a g r a p h 2 0 of m y m e m o r a n d u m of
16th D e c e m b e r , 1955 ( C . P . ( 5 5 ) 202), I t h e n s a w no point and s o m e
e m b a r r a s s m e n t in i n t r o d u c i n g l e g i s l a t i o n on t h e s e points alone, s i n c e
w e s h o u l d b e p r e s s e d t o t a k e t h e o p p o r t u n i t y of g i v i n g e f f e c t t o o t h e r
and m o r e controversial recommendations.
Since that paper was c i r c u ­
l a t e d , h o w e v e r , t h e s i t u a t i o n h a s b e e n c h a n g e d b y t h e p u b l i c a t i o n of a
r e p o r t b y a C o m m i t t e e of the I n n s of C o u r t C o n s e r v a t i v e a n d U n i o n i s t
S o c i e t y u n d e r t h e C h a i r m a n s h i p of S i r L i o n e l H e a l d .
This Committee
h a s r e c o m m e n d e d t h e a m e n d m e n t of t h e l a w t o g i v e e f f e c t t o r e c o m m e n d ­
a t i o n s ( a ) a n d (b) a b o v e a n d a l s o t h e i n t r o d u c t i o n i n E n g l a n d a n d W a l e s
of t h e S c o t t i s h d o c t r i n e o f d i m i n i s h e d r e s p o n s i b i l i t y .
3.
T h e C o m m i t t e e s u g g e s t t h a t if t h e s e r e c o m m e n d a t i o n s w e r e
a d o p t e d t h e effect w o u l d b e t h a t the d e a t h s e n t e n c e would, b e p a s s e d
only on those who have c o m m i t t e d a heinous c r i m e and the d i s c u s s i o n
o n t h e d e s i r a b i l i t y of r e t a i n i n g t h e d e a t h p e n a l t y would n o t b e c o n f u s e d
with extraneous disputes.
I do n o t m y s e l f t h i n k i t i s w h o l l y t r u e to s a y
t h a t if t h e r e c o m m e n d a t i o n s o f t h e C o m m i t t e e w e r e a d o p t e d t h e s e n t e n c e
of d e a t h c o u l d b e p a s s e d o n l y i n r e a l l y h e i n o u s c a s e s , b u t I h a v e l i t t l e
d o u b t t h a t t h e . C o m m i t t e e ' s r e p o r t a n d t h e s u g g e s t i o n t h a t t h e a r e a of
d i s a g r e e m e n t c a n b e n a r r o w e d will i m p r e s s our s u p p o r t e r s and
p a r t i c u l a r l y t h o s e w h o a r e w i t h u s o n t h e m a i n i s s u e of r e t e n t i o n of t h e
death sentence, but a r e disturbed about its p r e s e n t scope.
It s e e m s to
m e , t h e r e f o r e , t h a t w h i l e l e g i s l a t i o n on t h i s s u b j e c t m a y e x p o s e u s to ,
s o m e e m b a r r a s s m e n t t h e b a l a n c e of a d v a n t a g e l i e s i n a c c e p t i n g t h e
r e c o m m e n d a t i o n s on c o n s t r u c t i v e m a l i c e and provocation by w o r d s alone
and giving as clear an indication in the debate as is possible without
anticipating The Q u e e n ' s Speech that we will i n t r o d u c e legislation in the
next Session.
I do n o t t h i n k t h a t i n doing t h i s w e s h o u l d m a k e i t m o r e
difficult to a d h e r e to o u r r e f u s a l to i m p l e m e n t t h e r e c o m m e n d a t i o n s of
the Royal C o m m i s s i o n which we have rejected.
There is wide dis­
a g r e e m e n t on w h a t should b e done about the M ' N a g h t e n R u l e s ; a n d on
t h e q u e s t i o n of r a i s i n g t o 2 1 t h e a g e of l i a b i l i t y t o c a p i t a l p u n i s h m e n t ,
we can point out not only that the Royal C o m m i s s i o n itself was divided
b u t t h a t t h e a m o u n t of w e i g h t w h i c h s h o u l d b e g i v e n t o y o u t h i n a s s e s s i n g
a young m u r d e r e r ' s responsibility is eminently a m a t t e r for the
P r e r o g a t i v e r a t h e r than for legislation, while the doctrines on which I
n o w p r o p o s e t h a t w e s h o u l d l e g i s l a t e a r e p r i m a r i l y a c o n c e p t of j u d g e ­
m a d e law and, t h e r e f o r e , can m o r e a p p r o p r i a t e l y be dealt with by
a m e n d m e n t o f t h e l a w t h a n b y t h e e x e r c i s e of t h e P r e r o g a t i v e .
The
Committee's recommendation on diminished responsibility r a i s e s g r e a t e r
difficulties to which I r e f e r l a t e r .
T h e m e r i t s of t h e p r o p o s a l s a r e
d i s c u s s e d in the following p a r a g r a p h ? .
Constructive
Malice
4.
T h e p r e s e n t s c o p e of t h e d o c t r i n e of c o n s t r u c t i v e m a l i c e i s
b y no m e a n s c l e a r .
At i t s w i d e s t the doctrine m e a n s that a m a n is
g u i l t y of m u r d e r if h e k i l l s w h i l e c o m m i t t i n g a f e l o n y o r r e s i s t i n g a n
o f f i c e r of j u s t i c e , e v e n t h o u g h h e h a d n o i n t e n t i o n of k i l l i n g a n d n o r e a s o n
to t h i n k t h a t h i s a c t i o n w a s l i k e l y to c a u s e d e a t h o r s e r i o u s i n j u r y .
The
p r a c t i c e of t h e c o u r t s h a s w h i t t l e d t h e d o c t r i n e d o w n a g o o d d e a l , b u t i t
c a n s t i l l p r o d u c e t h e r e s u l t t h a t a n a c t done while c o m m i t t i n g a f e l o n y
o r r e s i s t i n g a n o f f i c e r of j u s t i c e m a y b e m u r d e r a l t h o u g h if d o n e i n o t h e r
c i r c u m s t a n c e s it would be only m a n s l a u g h t e r .
(If t h e a c t i s d o n e w i t h
i n t e n t i o n to k i l l o r i s s u c h t h a t i t w o u l d b e l i k e l y to c a u s e d e a t h o r s e r i o u s
injury it would be m u r d e r whatever the c i r c u m s t a n c e s ) .
The witnesses
before the Royal C o m m i s s i o n w e r e unanimous in thinking that the ancient
r u l e of c o n s t r u c t i v e m a l i c e w a s o b j e c t i o n a b l e .
There was some
d i f f e r e n c e of o p i n i o n a m o n g t h e m o n t h e q u e s t i o n w h e t h e r t h e d o c t r i n e
of c o n s t r u c t i v e m a l i c e s h o u l d b e r e t a i n e d t o a l i m i t e d e x t e n t i n o r d e r t o
e n s u r e a c o n v i c t i o n of m u r d e r w h e r e a c r i m i n a l u s i n g a f i r e a r m k i l l e d
accidentally.
T h e H e a l d C o m m i t t e e would r e t a i n t h e d o c t r i n e w h e r e d e a t h
r e s u l t s , a l b e i t a c c i d e n t a l l y , f r o m t h e u s e o r t h r e a t e n e d u s e of f i r e a r m s ,
explosives or other dangerous weapons.
The Royal C o m m i s s i o n thought
that the doctrine should b e abolished altogether and that its abolition
w o u l d p r o d u c e n o s t r i k i n g c h a n g e i n t h e p r a c t i c e of t h e c o u r t s .
5.
In m y v i e w t h e d o c t r i n e n e e d s r e d e f i n i n g so a s to s t a t e c l e a r l y
t h e c l a s s e s of c a s e w h e r e t h e d e a t h p e n a l t y i s a p p r o p r i a t e a n d t h e
c l a s s e s w h e r e m o s t p e o p l e w o u l d a g r e e t h a t t h e s e n t e n c e of d e a t h s h o u l d
not be passed.
F o r example, t h e r e a r e m a n y who hold that the killing,
e v e n a c c i d e n t a l l y , of a p o l i c e m a n o r a c i t i z e n w h o c o m e s t o h i s a i d b y
an a r m e d c r i m i n a l should be t r e a t e d as m u r d e r and a t t r a c t the death
penalty.
On t h e o t h e r h a n d a c c i d e n t a l k i l l i n g , e . g . of a w o m a n i n t h e
c o u r s e of r a p e , i t i s t h o u g h t s h o u l d b e m a n s l a u g h t e r a n d n o t m u r d e r .
6.
T h e R o y a l C o m m i s s i o n r e c o m m e n d e d t h a t t h e a b o l i t i o n of t h e
d o c t r i n e of c o n s t r u c t i v e m a l i c e s h o u l d b e s u b j e c t to t h e p r o v i s o t h a t
a c c o m p l i c e s s h o u l d r e m a i n l i a b l e t o b e c o n v i c t e d o i m u r d e r if t h e
principal is so liable.
The Heald C o m m i t t e e think that a c c o m p l i c e s
s h o u l d c o n t i n u e t o b e l i a b l e o n l y if t h e y k n e w t h a t t h e p r i n c i p a l w a s a r m e d .
T h i s a g a i n i n t r o d u c e s a d i f f i c u l t y of d e f i u i t i o n : a r m e d w i t h w h a t ?
The
R o y a l C o m m i s s i o n t h o u g h t t h a t c o n s i d e r a t i o n s , b o t h of e q u i t y a n d p u b l i c
p r o t e c t i o n , d e m a n d e d t h e m a i n t e n a n c e of t h e p r i n c i p l e t h a t w h e n t w o o r
m o r e p e r s o n s a r e p a r t i e s t o a c o m m o n d e s i g n f o r t h e u s e of u n l a w f u l
v i o l e n c e a n d t h e v i c t i m i s k i l l e d a l l p a r t i e s to t h e d e s i g n s h o u l d b e l i a b l e
to the s a m e p u n i s h m e n t .
T h i s v i e w s e e m s t o m e to b e p r e f e r r e d t o t h a t
of t h e H e a l d C o m m i t t e e .
7.
T h e r e i s n o d o c t r i n e of c o n s t r u c t i v e m a l i c e i n S c o t t i s h l a w
a n d n o q u e s t i o n of a m e n d i n g t h e l a w i n S c o t l a n d o n t h i s p o i n t , t h e r e f o r e ,
arises.
Provocation
8,
A s t h e l a w n o w s t a n d s m u r d e r m a y b e r e d u c e d to m a n s l a u g h t e r
if t h e a c c u s e d c a n s h o w ­
( a )
that he suffered such p r o v o c a t i o n a s m i g h t c a u s e a r e a s o n a b l e m a n to l o s e h i s s e l f - c o n t r o l a n d u s e violence with fatal r e s u l t s ,
and
(b)
t h a t h e w a s i n f a c t d e p r i v e d of h i s s e l f - c o n t r o l and c o m m i t t e d the offence while so d e p r i v e d . It h a s long b e e n h e l d t h a t i n s u l t i n g o r a b u s i v e l a n g u a g e c a n n o t b y i t s e l f
b e s u f f i c i e n t to r e d u c e m u r d e r to m a n s l a u g h t e r , b u t i t w a s a l s o h e l d
for a c o n s i d e r a b l e p e r i o d that w o r d s conveying i n f o r m a t i o n , e , g . a
s u d d e n c o n f e s s i o n of a d u l t e r y , c o u l d b e s u f f i c i e n t .
Decisions on this
l a t t e r p o i n t w e r e o v e r - r u l e d b y t h e H o u s e of L o r d s i n t h e c a s e o f H o l m e c
in 1946 w h e n L o r d S i m o n laid down t h a t "in no c a s e could w o r d s a l o n e ,
s a v e i n c i r c u m s t a n c e s of a m o s t e x t r e m e a n d e x c e p t i o n a l c h a r a c t e r "
r e d u c e m u r d e r to m a n s l a u g h t e r .
9.
The Royal C o m m i s s i o n r e c o m m e n d e d and the Heald C o m m i t t e e
support the r e c o m m e n d a t i o n that " w h e r e the j u r y a r e satisfied that the
a c c u s e d k i l l e d t h e d e c e a s e d u p o n p r o v o c a t i o n , t h a t h e w a s d e p r i v e d of
h i s o e l f - c o n t r o l a s a r e s u l t of t h a t p r o v o c a t i o n a n d t h a t a r e a s o n a b l e m a n
m i g h t h a v e b e e n s o d e p r i v e d t h e n a t u r e ( a s d i s t i n c t f r o m t h e d e g r e e ) of t h e
p r o v o c a t i o n should be i m m a t e r i a l " ( p a r a g r a p h 151).
T h e r e is s o m e doubt
whether the Holmes judgment would be followed in the Scottish c o u r t s and
the Royal C o m m i s s i o n r e c o m m e n d e d that since it is d e s i r a b l e that the law
o n t h i s p o i n t s h o u l d b e t h e s a m e o n b o t h s i d e s of t h e b o r d e r i t s h o u l d b e
m a d e c l e a r that a n y a m e n d m e n t m a d e in E n g l a n d applied also to Scotland.
Diminished
responsibility
10.
The Heald Committee r e c o m m e n d with one dissentient that on
t h e a n a l o g y of S c o t t i s h l a w t h e j u r y s h o u l d b e e m p o w e r e d t o b r i n g i n a
v e r d i c t of m a n s l a u g h t e r i f t h e y a r e s a t i s f i e d t h a t a t t h e t i m e of t h e
offence the p e r s o n c h a r g e d , though not insane, was suffering from m e n t a l
w e a k n e s s o r a b n o r m a l i t y b o r d e r i n g o n i n s a n i t y to s u c h a n e x t e n t that h i s
responsibility was substantially diminished, and that in such a c a s e the
p r i s o n e r s h o u l d b e o r d e r e d to b e d e t a i n e d d u r i n g H e r M a j e s t y ' s P l e a s u r e . '
The Royal C o m m i s s i o n rejected the proposal that the Scottish doctrine
should be adopted in England, not b e c a u s e they thought that juries would
b e too l e n i e n t ( a l t h o u g h t h e y d i d so t h i n k ) b u t b e c a u s e t h e y t h o u g h t t h a t if
t h e d o c t r i n e of d i m i n i s h e d r e s p o n s i b i l i t y w a s t o b e a d o p t e d a t a l l i t
ought to be adopted for all offences and that so r a d i c a l a change ought
n o t to b e m a d e m e r e l y f o r t h e p u r p o s e of e n a b l i n g t h e c o u r t to t a k e
a c c o u n t of a s p e c i a l c a t e g o r y of m i t i g a t i n g c i r c u m s t a n c e s .
If t h e
q u e s t i o n w a s to b e c o n s i d e r e d a t a l l t h e y t h o u g h t i t s h o u l d b e a f t e r
c o n s i d e r a t i o n of t h e q u e s t i o n b y a b o d y a p p o i n t e d f o r t h a t p u r p o s e .
( P a r a g r a p h 413).
11.
I n v i e w of t h e a t t i t u d e of t h e R o y a l C o m m i s s i o n t h e H e a l d
C o m m i t t e e s r e c o m m e n d a t i o n on this point r a i s e s difficulties which
i t s o t h e r r e c o m m e n d a t i o n s do not, and m u c h f u l l e r c o n s i d e r a t i o n w o u l d
b e r e q u i r e d b e f o r e it could b e adopted.
I suggest that we should point
o u t t h a t the R o y a l C o m m i s s i o n r e j e c t e d t h i s p r o p o s a l a n d s h o u l d do n o
m o r e t h a n u n d e r t a k e to c o n s i d e r i t .
T
Suicide pacts
12.
A t p r e s e n t if t w o p e o p l e a g r e e to c o m m i t s u i c i d e a n d o n l y
o n e dies t h e s u r v i v o r i s g u i l t y of m u r d e r .
If t h e s u r v i v o r h a s m a d e a
g e n u i n e a t t e m p t to k i l l h i m s e l f i t i s t h e p r a c t i c e to r e c o m m e n d a
reprieve.
T h e R o y a l C o m m i s s i o n c o n s i d e r e d t h a t if t h e s u r v i v o r h a d
h i m s e l f k i l l e d t h e o t h e r p a r t y h e s h o u l d b e g u i l t y of m u r d e r a s a t p r e s e n t ,
but r e c o m m e n d e d that one who only aids, abets o r instigates the suicide
of a n o t h e r p e r s o n w i t h o u t k i l l i n g h i m s h o u l d , i n f u t u r e , b e g u i l t y of t h a t
o f f e n c e a n d n o t of m u r d e r a n d s h o u l d b e l i a b l e t o l i f e i m p r i s o n m e n t .
r
13.
The Heald Cornmittee s report does not discuss suicide
p a c t s b u t if t h e l a w i s b e i n g a m e n d e d t h e o p p o r t u n i t y m i g h t b e t a k e n to
i m p l e m e n t t h i s r e c o m m e n d a t i o n of t h e R o y a l C o m m i s s i o n w h i c h w i l l
s u b s t a n t i a l l y h a v e t h e e f f e c t of s e c u r i n g b y p r o c e s s of t h e l a w w h a t
i s n o w s e c u r e d b y t h e e x e r c i s e of t h e P r e r o g a t i v e .
14.
A s suicide is not a c r i m e in Scotland aiding and abetting'
s u i c i d e i s n o t m u r d e r a n d n o c o r r e s p o n d i n g a m e n d m e n t of S c o t t i s h
law is required.
Conclusions
15.
I recommend
(l)
that the law should be a m e n d e d in the following r e s p e c t s :­
( a )
t h e d o c t r i n e of c o n s t r u c t i v e m a l i c e s h o u l d b e
abolished with the proviso that a c c o m p l i c e s
s h o u l d c o n t i n u e t o b e l i a b l e t o b e c o n v i c t e d of
m u r d e r if t h e p r i n c i p a l i s s o l i a b l e ;
( b )
the doctrine that provocation by w o r d s alone
cannot, save in the m o s t exceptional c i r c u m s t a n c e s ,
r e d u c e m u r d e r to m a n s l a u g h t e r should b e
abolished;
and
( c )
( 2 )
­
aiding and abetting or instigating suicide should
c e a s e to b e m u r d e r and s h o u l d b e p u n i s h a b l e by
life i m p r i s o n m e n t ;
that w e should a n n o u n c e in the d e b a t e that we a c c e p t
t h e r e c o m m e n d a t i o n s of t h e R o y a l C o m m i s s i o n o n
these points and that we will take an early opportunity
of i n t r o d u c i n g l e g i s l a t i o n t o g i v e e f f e c t t o t h e m a n d
that we should say that we a r e giving further
c o n s i d e r a t i o n t o t h e p r o b l e m of m e n t a l a b n o r m a l i t y
a n d t o t h e s u g g e s t i o n t h a t t h e S c o t t i s h d o c t r i n e of
diminished responsibility should be adopted in
England;
( 3 )
that I should indicate, on lines which I p r o p o s e
t o d i s c u s s w i t h t h o s e of m y c o l l e a g u e s p r i n c i p a l l y
concerned, that in deciding in particular c a s e s
w h e t h e r t o r e c o m m e n d t h e e x e r c i s e of t h e R o y a l
P r e r o g a t i v e I shall take into account other m a t t e r s
a r i s i n g o u t of t h e r e c o m m e n d a t i o n s of t h e R o y a l
Commission.
G. LLi. - G .
H o r n e Offic e, S . W . 1 .
28th J a n u a r y ,
1956.