CONFIDENTIAL
,
397
rHIS DOCUMENT IS T H E P R O P E R T Y O F H E R BRITANNIC M A J E S T Y ' S G O V E R N M E N T )
C(66) 96
4th J u l y , 1966
COPY NO.
67
CABINET T H E A P P O I N T M E N T OF J U S T I C E S O F T H E P E A C E IN E N G L A N D AND W A L E S M e m o r a n d u m b y the L o r d C h a n c e l l o r T h e C a b i n e t a t t h e i r m e e t i n g on 9th D e c e m b e r , 1965,
(CC(65) 69th C o n c l u s i o n s , M i n u t e 5) i n v i t e d m e "to b r i n g b e f o r e t h e m i n
due c o u r s e p r o p o s a l s f o r i m p r o v i n g t h e a r r a n g e m e n t s f o r s e l e c t i n g
J u s t i c e s of the P e a c e in E n g l a n d and W a l e s " .
I a m now i n a p o s i t i o n t o
do t h i s .
M y p r o p o s a l s w e r e c o n s i d e r e d by the H o m e A f f a i r s C o m m i t t e e
a t t h e i r m e e t i n g on the 24th J u n e (H(66) 14th M e e t i n g , M i n u t e 3) and t h e y
w e r e i n f a v o u r of t h e m , s u b j e c t t o c e r t a i n m i n o r q u a l i f i c a t i o n s . ,
2,
T h i s s u b j e c t h a s g i v e n r i s e t o c o n s i d e r a b l e and c o n t i n u a l
c o n t r o v e r s y f o r 135 y e a r s and h a s a l r e a d y r e s u l t e d in two R o y a l
Commissions,
T h i s m e m o r a n d u m b e g i n s w i t h a r e v i e w of t h e s e y e a r s
and 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 C o m m i s s i o n s .
It g o e s on t o
d e s c r i b e t h e p r e s e n t p o s i t i o n a n d i t s d e f e c t s , and c o n c l u d e s w i t h a
s u m m a r y of m y p r o p o s a l s f o r d e a l i n g with t h e p r o b l e m o n c e a n d f o r a l l .
Historical
Ii
3.
F o r m a n y y e a r s f r o m 1830 t h e r e w a s c o n s i d e r a b l e c o m p l a i n t b y
t h e W h i g s t h a t T o r y G o v e r n m e n t s a l w a y s a p p o i n t e d T o r y J u s t i c e s and by
t h e T o r i e s t h a t Whig G o v e r n m e n t s a l w a y s a p p o i n t e d Whig J u s t i c e s .
4.
By t h e end of t h e c e n t u r y the c o m p l a i n t w a s m a i n l y t h a t of t h e
L i b e r a l s t h a t the C o n s e r v a t i v e s a p p o i n t e d t o o m a n y C o n s e r v a t i v e
Justices.
It w a s a l s o c o m p l a i n e d t h a t C h u r c h of E n g l a n d J u s t i c e s w e r e
a p p o i n t e d t o the e x c l u s i o n of C a t h o l i c and N o n - C o n f o r m i s t J u s t i c e s .
5.
A f t e r t h e L i b e r a l l a n d s l i d e in 1906 t h e G o v e r n m e n t a b o l i s h e d
t h e p r o p e r t y q u a l i f i c a t i o n f o r J u s t i c e s and i n 1910 a p p o i n t e d a R o y a l
C o m m i s s i o n "to c o n s i d e r and r e p o r t w h e t h e r a n y and w h a t s t e p s should
b e t a k e n t o f a c i l i t a t e t h e s e l e c t i o n of the m o s t s u i t a b l e p e r s o n s t o be
J u s t i c e s of t h e P e a c e i r r e s p e c t i v e of c r e e d and p o l i t i c a l o p i n i o n " .
The
C o m m i s s i o n i n c l u d e d M r . J o h n S i m o n and M r . A r t h u r H e n d e r s o n and
i t r e p o r t e d i n 1911 ( C m d . 5250).
\I
6.
Since 1536 J u s t i c e s of t h e P e a c e i n E n g l a n d and "Wales h a v e b e e n
a p p o i n t e d b y the C r o w n on the a d v i c e of the L o r d C h a n c e l l o r ( e x c e p t in
L a n c a s h i r e w h e r e t h e y a r e a p p o i n t e d on the a d v i c e of the C h a n c e l l o r of
the Duchy).
In 1906 t h e L o r d C h a n c e l l o r a c t e d in n e a r l y a l l c a s e s on
t h e a d v i c e of t h e L o r d s L i e u t e n a n t .
-1CQMFSDENT5AL
7.
I arn going tc q u o t e f a i r l y e x t e n s i v e l y f r o m the R e p o r t of the R o y a l
C o m m i s s i o n of 1910-11 a s it s e e m s to m e t h a t t h e i r v i e w s a r e j u s t a s
a p p o s i t e today a s t h e y w e r e m o r e t h a n half a c e n t u r y a g o .
In t h e i r R e p o r t t h e y s a i d : ­
" S p e a k i n g v e r y g e n e r a l l y we in the f i r s t p l a c e e x p r e s s t h e opinion
t h a t the e v i l s n o w e x i s t i n g in the s y s t e m of s e l e c t i n g J u s t i c e s
of t h e P e a c e c a n , to a g r e a t e x t e n t , be r e m e d i e d by r e m o v i n g
p o l i t i c a l o p i n i o n s and p o l i t i c a l a c t i o n f r o m the i n f l u e n c e s
affecting s u c h s e l e c t i o n .
T h e s u b s t i t u t e for s u c h p o l i t i c a l opinion and i n f l u e n c e s s h o u l d b e
found in t h e f i t n e s s of t h e i n t e n d e d J u s t i c e s , a n d s u c h f i t n e s s
should be c o n s t i t u t e d by t h e i r m o r a l and p e r s o n a l c h a r a c t e r ,
t h e i r g e n e r a l a b i l i t y , b u s i n e s s h a b i t s , i n d e p e n d e n c e of j u d g m e n t ,
and c o m m o n s e n s e .
T h e v o l u n t a r y s y s t e m , no doubt e x c l u d e s the e x i s t e n c e of a h i g h
j u d i c i a l s t a n d a r d ; b u t s u c h s t a n d a r d m a y find s o m e e q u i v a l e n t
if only m e n of h i g h c h a r a c t e r and i n t e l l i g e n c e b e a p p o i n t e d to a c t
as Justices,
P o l i t i c a l z e a l and d e c i d e d p o l i t i c a l c o n v i c t i o n s i n no way r e p r e s e n t
such equivalent standard.
We t h e r e f o r e e x p r e s s t h e confident v i e w t h a t p o l i t i c a l opinion or
p o l i t i c a l s e r v i c e s s h o u l d not b e r e g a r d e d a s in any w a y c o n ­
t r o l l i n g o r i n f l u e n c i n g the a p p o i n t m e n t of J u s t i c e s .
The man
m o s t fitted to d i s c h a r g e t h e d u t i e s of the office s h o u l d b e
appointed.
T h e d e c l a r a t i o n c o n t a i n e d i n the S t a t u t e of H e n r y V
should s t i l l p r e v a i l : J u s t i c e s of t h e P e a c e m u s t be r e s i d e n t s
i n t h e i r s e v e r a l c o u n t i e s , 'of t h e b e s t r e p u t a t i o n , and m o s t
worthy m e n in the county'.
We s e e k to e n f o r c e t h e s e v i e w s by r e c o r d i n g an o p i n i o n , f o r m e d
after full i n q u i r y , t h a t a p p o i n t m e n t s i n f l u e n c e d by c o n s i d e r a t i o n s
of p o l i t i c a l opinion and s e r v i c e s a r e h i g h l y d e t r i m e n t a l to
p u b l i c i n t e r e s t s , and t e n d to l o w e r t h e a u t h o r i t y of t h e
M a g i s t e r i a l B e n c h e s in t h e c o u n t r y .
We h a v e shown h o w n e c e s s a r y i t is to c o n s i d e r t h e q u a l i t i e s w h i c h
r e n d e r a p e r s o n s u i t a b l e to b e a J u s t i c e of the P e a c e , and we
h a v e a l r e a d y r e f e r r e d to the i m p o r t a n t j u d i c i a l and
a d m i n i s t r a t i v e d u t i e s w h i c h the h o l d e r s of the office a r e c a l l e d
upon to d i s c h a r g e .
We h a v e a l s o e x p r e s s e d t h e o p i n i o n t h a t i n
v i e w of t h e s e d u t i e s i t i s n e c e s s a r y t h a t J u s t i c e s s h o u l d be m e n
of sufficient a b i l i t y , of i m p a r t i a l and i n d e p e n d e n t j u d g m e n t , and
of high p e r s o n a l c h a r a c t e r .
B u t i t i s a l s o in t h e p u b l i c i n t e r e s t
t h a t they s h o u l d b e m e n who c o m m a n d g e n e r a l c o n f i d e n c e .
And for t h i s r e a s o n a l s o i t i s d e s i r a b l e t h a t the a r e a of s e l e c ­
t i o n s h o u l d be w i d e , and the c h o i c e c o m p r e h e n s i v e , so t h a t the
B e n c h m a y i n c l u d e m e n of a l l s o c i a l c l a s s e s and of a l l s h a d e s
of c r e e d a n d p o l i t i c a l opinion.
The r e m o v a l of t h e p r o p e r t y q u a l i f i c a t i o n for County J u s t i c e s
by t h e A c t of 1906 h a s of c o u r s e m a t e r i a l l y e n l a r g e d t h e field
of s e l e c t i o n .
U n d e r t h e o p e r a t i o n of t h i s A c t m e m b e r s of a i l
c l a s s e s a r e e l i g i b l e for apx^ointment, and we c o n c u r in the v i e w
w h i c h h a s b e e n p r e s e n t e d to u s v e r y f o r c i b l y t h a t i t i s in the
p u b l i c i n t e r e s t t h a t w o r k i n g m e n w i t h a f i r s t - h a n d k n o w l e d g e of
t h e c o n d i t i o n s of life a m o n g t h e i r own c l a s s should b e a p p o i n t e d
to the County a s w e l l a s to t h e B o r o u g h B e n c h e s " .
8.
The 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 J u s t i c e s of t h e F e a c e
s h o u l d c o n t i n u e to be a p p o i n t e d to t h e b e n c h on the r e c o m m e n d a t i o n of t h e
l i o r d C h a n c e l l o r , w h o , a s Head of t h e J u d i c i a r y , ought to r e m a i n t h e
M i n i s t e r r e s p o n s i b l e for t h e i r s e l e c t i o n and d i s c i p l i n e .
They
r e c o m m e n d e d too t h a t the l o r d s l i e u t e n a n t of C o u n t i e s s h o u l d r e t a i n
t h e i r f u n c t i o n s of m a k i n g r e c o m m e n d a t i o n s for a p p o i n t m e n t to t h e L o r d
C h a n c e l l o r , but t h a t t h e y should be a s s i s t e d by s m a l l a d v i s o r y
c o m m i t t e e s a p p o i n t e d by t h e L o r d C h a n c e l l o r and a c t i n g i n a c c o r d a n c e
with p r a c t i c e and p r o c e d u r e a p p r o v e d by h i m .
The Lord Chancellor
w a s to a p p o i n t s i m i l a r c o m m i t t e e s for t h e B o r o u g h s .
9.
T h u s i t w a s t h a t t h e p r e s e n t s y s t e m of a d v i s o r y c o m m i t t e e c a m e
i n t o b e i n g , though the f i r s t c o m m i t t e e s w e r e not a c t u a l l y a p p o i n t e d
u n t i l 1912.
1
10.
The R o y a l C o m m i s s i o n went on to e x p r e s s t h e m s e l v e s , in d e f i n i t e
and f o r t h r i g h t t e r m s , on t h e high i m p o r t a n c e of k e e p i n g p o l i t i c s out of
t h e a p p o i n t m e n t of J u s t i c e s and a s to t h e q u a l i t i e s w h i c h m u s t b e sought
i n m e n and w o m e n to b e a p p o i n t e d to t h e B e n c h .
I think i t w e l l w o r m
w h i l e s e t t i n g out t h e i r v i e w s v e r b a t i m : ­
"We a r e of t h e o p i n i o n t h a t it i s n o t i n the public i n t e r e s t t h a t t h e r e
s h o u l d be an u n d u e p r e p o n d e r a n c e of J u s t i c e s d r a w n f r o m one
political party.
We s t r o n g l y c o n d e m n the i n f l u e n c e and a c t i o n of p o l i t i c i a n s being
a l l o w e d to s e c u r e a p p o i n t m e n t s on b e h a l f of any p o l i t i c a l p a r t y .
We s u b m i t to t h e L o r d C h a n c e l l o r f o r t h e t i m e b e i n g t h a t he ought
to r e j e c t and r e p u d i a t e any s u c h i n f l u e n c e , and we e q u a l l y u r g e
t h a t L o r d s L i e u t e n a n t and a n y o n e r e c o m m e n d i n g p e r s o n s for
a p p o i n t m e n t a s J u s t i c e s should d e c l i n e to r e c o g n i s e p o l i t i c a l or
r e l i g i o u s o p i n i o n s a s any g r o u n d of q u a l i f i c a t i o n o r d i s q u a l i f i c a ­
tion.
We a l s o s u b m i t t h a t the L o r d C h a n c e l l o r and the L o r d s L i e u t e n a n t
should r e f u s e to r e c e i v e any u n a s k e d - f o r r e c o m m e n d a t i o n s for
a p p o i n t m e n t f r o m M e m b e r s of P a r l i a m e n t o r c a n d i d a t e s for
s u c h m e m b e r s h i p in t h e i r own c o n s t i t u e n c i e s , o r f r o m
p o l i t i c a l a g e n t s o r r e p r e s e n t a t i v e s of p o l i t i c a l a s s o c i a t i o n s .
In v i e w of t h e i m p o r t a n t j u d i c i a l and a d m i n i s t r a t i v e d u t i e s which
J u s t i c e s of t h e P e a c e a r e c a l l e d u p o n to d i s c h a r g e , i t i s
n e c e s s a r y t h a t p e r s o n s a p p o i n t e d to t h e office s h o u l d b e m e n
of m o r a l and good p e r s o n a l c h a r a c t e r , g e n e r a l a b i l i t y , b u s i n e s s
h a b i t s , i n d e p e n d e n t j u d g m e n t , and c o m m o n s e n s e .
-3­
It i s in t h e p u b l i c i n t e r e s t that p e r s o n s of e v e r y s o c i a l g r a d e should
b e a p p o i n t e d J u s t i c e s of the P e a c e , and t h a t w o r k i n g m e n with a
f i r s t - h a n d k n o w l e d g e of t h e c o n d i t i o n s of life a m o n g t h e i r own
c l a s s should b e a p p o i n t e d to t h e County a s v/ell a s to t h e B o r o u g h
Benches.
T h e a p p o i n t m e n t of e v e r y J u s t i c e s h o u l d b e a c c o m p a n i e d by a
f o r m a l u n d e r t a k i n g on h i s p a r t to fulfil h i s fair s h a r e of
m a g i s t e r i a l d u t i e s and in t h e a b s e n c e of any v a l i d e x c u s e for
n e g l e c t to d i s c h a r g e s u c h d u t i e s h e s h o u l d be c a l l e d upon to
r e s i g n h i s office, and if he r e f u s e s to r e s i g n h e should be
r e m o v e d f r o m t h e C o m m i s s i o n of t h e P e a c e ,
But a r e q u e s t
on the p a r t of a J u s t i c e who h a s c h a n g e d h i s p l a c e of r e s i d e n c e
o u t of the a r e a of t h e C o m m i s s i o n £or which h e a c t s to b e
t r a n s f e r r e d t o t h e C o m m i s s i o n for t h e d i s t r i c t i n which the n e w
r e s i d e n c e is s i t u a t e d should r e c e i v e v e r y f a v o u r a b l e c o n s i d e r a ­
tion."
11,
L a s t l y , the 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 no c h a n g e i n t h e
s t a t u t o r y q u a l i f i c a t i o n s of J u s t i c e s , nor did they r e c o m m e n d any c h a n g e
i n t h e n u m b e r s or t e n u r e of office of e x - c f f i c i o J u s t i c e s .
12.
When the L a b o u r G o v e r n m e n t v/as e l e c t e d in 1945 t h e r e w e r e
s i m i l a r c o m p l a i n t s t h a t a n u n d u e p r o p o r t i o n of the J u s t i c e s w e r e
C o n s e r v a t i v e o r L i b e r a l and t h e L a b o u r G o v e r n m e n t a p p o i n t e d a n o t h e r
R o y a l C o m m i s s i o n i n t e r a l i a "to r e v i e w the p r e s e n t a r r a n g e m e n t s for
t h e s e l e c t i o n and r e m o v a l of J u s t i c e s of t h e P e a c e in G r e a t B r i t a i n , and
to r e p o r t w h a t c h a n g e s , if a n y , in t h a t s y s t e m a r e n e c e s s a r y or
d e s i r a b l e to e n s u r e t h a t only t h e m o s t s u i t a b l e p e r s o n s a r e a p p o i n t e d
to t h e C o m m i s s i o n of t h e P e a c e " .
13.
T h i s C o m m i s s i o n , v/hich i n c l u d e d M r . D i n g l e F o o t , s a t for two
y e a r s and r e c e i v e d 93 m e m o r a n d a and h e a r d 75 w i t n e s s e s .
In t h e i r
R e p o r t (Cmd. 7463 of J u l y , 1948) they c o n f i r m e d t h e v i e w s of t h e i r
p r e d e c e s s o r s t h a t the L o r d C h a n c e l l o r (and t h e C h a n c e l l o r of t h e Duchy
of L a n c a s t e r ) should r e t a i n t h e i r e x i s t i n g f u n c t i o n s in r e g a r d to the
a p p o i n t m e n t of J u s t i c e s .
T h e y thought t h a t t h e L o r d C h a n c e l l o r ^ staff
for d e a l i n g with t h i s s e c t i o n of h i s r e s p o n s i b i l i t i e s w a s u n d e r g r a d e d and
i n a d e q u a t e ; they w i s h e d t o s e e the a d v i s o r y c o m m i t t e e s y s t e m r e t a i n e d ,
r e c o m m e n d i n g t h a t t h e c o m m i t t e e s should b e s m a l l and c o n s t i t u t e d a s
follows:
" T h e f i r s t a i m s h o u l d be t o a p p o i n t a s m e m b e r s of s u c h c o m m i t t e e s
j u d i c i a l l y m i n d e d p e o p l e who w i l l r e c o g n i s e t h a t the s e l e c t i o n
of m e n and w o m e n to s i t in j u d g m e n t on o t h e r s i s a h i g h
r e s p o n s i b i l i t y , t h a t t h e i r duty as m e m b e r s of a n a d v i s o r y
c o m m i t t e e i s to find t h e m e n and w o m e n who a r e b e s t qualified
f o r t h i s office, and t h a t in mailing r e c o m m e n d a t i o n s to the
L o r d C h a n c e l l o r t h e y m u s t s u b o r d i n a t e to t h i s a i l o t h e r
considerations.
S e c o n d l y , m e m b e r s of a d v i s o r y c o m m i t t e e s
should b e d r a w n f r o m d i f f e r e n t s e c t i o n s of the c o m m u n i t y , so
t h a t a s f a r a s p o s s i b l e the a d v i s o r y c o m m i t t e e v/ill r e p r e s e n t
a c r o s s - s e c t i o n of society - t h e m e m b e r s b e i n g p e o p l e who h a v e
s u c h l o c a l k n o w l e d g e and a s s o c i a t i o n s t h a t they c a n p r o v i d e
o r o b t a i n the i n f o r m a t i o n w h i c h t h e c o m m i t t e e r e q u i r e s to
e n a b l e i t to s e l e c t f r o m p e r s o n s i n v a r i o u s w a l k s of life
-4­
t h o s e m e n and w o m e n who a r e b e s t f i t t e d to be j u s t i c e s .
T h i r d l y , the p r o p o r t i o n of m e m b e r s of t h e c o m m i t t e e who a r e
a p p o i n t e d b e c a u s e of t h e i r affiliation w i t h p o l i t i c a l p a r t i e s
s h o u l d b e r e s t r i c t e d , so t h a t t h e i r i n f l u e n c e s h a l l n o t b e
p r e d o m i n a n t and t h a t r o o m m a y b e found for o t h e r m e m b e r s
w h o s e i n t e r e s t s a n d a s s o c i a t i o n s l i e in o t h e r fields t h a n
political work.
F o u r t h l y , if in any a r e a i t i s found p r a c t i c a b l e
w i t h o u t i n c l u d i n g p e r s o n s c h o s e n b e c a u s e of theix" affiliation
with p o l i t i c a l p a r t i e s to c o n s t i t u t e an e f f e c t i v e c o m m i t t e e w h i c h
w i l l h a v e t h e r e q u i s i t e l o c a l k n o w l e d g e and t h e r e q u i s i t e
i m p a r t i a l i t y and f r e e d o m f r o m p o l i t i c a l b i a s , the L o r d
C h a n c e l l o r s h o u l d f e e l f r e e to a p p o i n t s u c h a c o m m i t t e e " .
14.
The lloyal C o m m i s s i o n r e c o m m e n d e d that advisory c o m m i t t e e s
s h o u l d be g i v e n g e n e r a l d i r e c t i o n s on t h e c a r r y i n g o u t of t h e i r d u t i e s
which s h o u l d i n c l u d e t h e f o l l o w i n g : ­
(a)
No m e m b e r of t h e c o m m i t t e e s h o u l d r e g a r d h i m s e l f a s ' t h e
r e p r e s e n t a t i v e of any p o l i t i c a l p a r t y , a n d t h a t i t i s the duty of e a c h a n d
e v e r y m e m b e r of the c o m m i t t e e to be v i g i l a n t , to p r e v e n t t h e
r e c o m m e n d a t i o n of any p e r s o n for a p p o i n t m e n t o r t h e e x c l u s i o n of any
p e r s o n f r o m a p p o i n t m e n t a s a j u s t i c e , on t h e s o l e g r o u n d t h a t he i s a
m e m b e r of a p a r t i c u l a r p a r t y .
1
(b)
Li a p p o i n t i n g j u s t i c e s the p a r a m o u n t c o n s i d e r a t i o n i s t h e
p e r s o n ' s f i t n e s s for t h e d i s c h a r g e of j u d i c i a l d u t i e s .
(c)
C a r e m u s t be t a k e n to s e e t h a t t h e r e a r e p e r s o n s in t h e
c o m m i s s i o n r e p r e s e n t a t i v e of v a r i o u s s e c t i o n s of t h e c o m m u n i t y ,
(d)
If, a f t e r a p r e l i m i n a r y s e l e c t i o n h a s b e e n m a d e , i t i s found t h a t
a c o n s i d e r a b l e m a j o r i t y of t h e p r o p o s e d n e w j u s t i c e s a r e of one p o l i t i c a l
f a i t h , the l i s t should b e r e v i s e d w i t h a v i e w t o s e e i n g w h e t h e r e q u a l l y
good, or b e t t e r , n o m i n a t i o n s c a n b e m a d e f r o m a m o n g m e m b e r s of
other political p a r t i e s .
If t h e a n s w e r i s t h a t t h e y c a n n o t , t h e n t h e
o r i g i n a l l i s t should s t a n d .
15.
T h e R o y a l C o m m i s s i o n f u r t h e r r e c o m m e n d e d t h a t C h a i r m e n of
County C o u n c i l s and of U r b a n and R u r a l D i s t r i c t C o u n c i l s should c e a s e
to b e J u s t i c e s e x - o f f i c i o .
T h e M a y o r of a B o r o u g h should b e a J u s t i c e
e x - o f f i c i o d u r i n g h i s p e r i o d of office but n o t a s e x - M i a y o r , a n d h i s
r i g h t s to p r e s i d e o v e r t h e J u s t i c e s shotild be c u r t a i l e d .
Current facts
16.
T h e r e a r e 64 C o m m i s s i o n s in the C o u n t i e s and 129 in the B o r o u g h s
in E n g l a n d and W a l e s ,
A p a r t f r o m the J u s t i c e s e x - o f f i c i o , who n u m b e r
about 2, 3 0 0 , t h e r e a r e s o m e 10, 000 J u s t i c e s cf w h o m about 15, 300 a r e
on t h e A c t i v e L i s t and t h e r e m a i n i n g 2, 700 on t h e S u p p l e m e n t a l L i s t ,
-5­
CONFIDENTIAL
402
*
17.
Sufficient i n f o r m a t i o n d o e s n o t e x i s t to a d m i t of t h e i r c l a s s i f i c a t i o n
into s o c i a l g r o u p s but b e f o r e the r e c e n t e l e c t i o n t h e p o l i t i c a l affiliation
of t h e J u s t i c e s on t h e A c t i v e L i s t w a s , so far a s k n o w n , a s f o l l o w s : Con.
Lib.
Lab.
Not known
Counties
4 , 729
1,124
3, 323
1, 886
Boroughs
1, 632
519
1,458
598
1, 643
4, 786
2,464
6,411
T h e s e f i g u r e s a r e not a c c u r a t e .
Over the y e a r s t h e r e h a s b e e n
a s u b s t a n t i a l shift to L a b o u r but the f i g u r e s r e p r e s e n t the p o l i t i c a l
opinions of the J u s t i c e s when t h e y w e r e f i r s t a p p o i n t e d - i n m a n y c a s e s
30 y e a r s a g o ,
18,
The v o t e s c a s t i n B o r o u g h s and C o u n t i e s at t h e 1966 G e n e r a l
E l e c t i o n w e r e , a s f a r a s I h a v e b e e n a b l e to a s c e r t a i n , a s f o l l o w s : Con.
Lib.
Counties
5,104, 079
1, 378, 904
5, 248,170
Boroughs
4, 9 6 3 , 8 8 6
74-6,239
6,470,418
10, 0 6 7 , 9 6 5
2,125,143
Lab.
11,718,538
19.
N o t w i t h s t a n d i n g t h e r e c o m m e n d a t i o n s of t h e two R o y a l C o m m i s s ­
i o n s , the a v e r a g e A d v i s o r y C o m m i t t e e h a s c o n s i s t e d of a C h a i r m a n a n d
two C o n s e r v a t i v e s , two L a b o u r and o n e l i b e r a l .
Nor h a v e t h e
ex-officio J u s t i c e s b e e n a b o l i s h e d .
Criticisms
20.
The following c r i t i c i s m s a r e c u r r e n t l y m a d e of t h e e x i s t i n g
system:
(a)
T h a t , w h e r e a s i n c u r p a s t h i s t o r y a l l j u d i c i a l o f f i c e r s w e r e at
one t i m e a p p o i n t e d on p o l i t i c a l g r o u n d s , today no a t t e n t i o n i s p a i d to
p o l i t i c s in a p p o i n t i n g any o t h e r j u d i c i a l o f f i c e r s ( J u d g e s , R e c o r d e r s ,
C h a i r m e n and D e p u t y C h a i r m e n of Q u a r t e r S e s s i o n s and S t i p e n d i a r y
M a g i s t r a t e s who a r e a l l a p p o i n t e d on m e r i t alone) a n d i t i s q u i t e w r o n g
t h a t any a t t e n t i o n w h a t e v e r should be p a i d to p a r t y p o l i t i c s in a p p o i n t i n g
justices,
(b)
A c o m p l a i n t (which c o m e s only f r o m the L a b o u r P a r t y ) t h a t not
e n o u g h a t t e n t i o n is p a i d to p a r t y p o l i t i c s in a p p o i n t i n g j u s t i c e s .
(c)
That the p r o p o r t i o n of the population' who t a k e a n a c t i v e p a r t
i n l o c a l p a r t y p o l i t i c s i s v e r y s m a l l and t h a t t h i s s m a l l c l a s s i s g r e a t l y
o v e r - r e p r e s e n t e d on the Bench although ­
-6­
(i)
(ii)
T h e r e i s no r e a s o n to s u p p o s e t h a t l o c a l p a r t y p o l i t i c i a n s a r e
n e c e s s a r i l y q u a l i f i e d to b e good m a g i s t r a t e s ; if they a r c , they
s h o u l d be a p p o i n t e d on t h e i r m e r i t s l i k e a n y o n e e l s e ,
T h e y a r e u s u a l l y too b u s y to u n d e r g o c o u r s e s of t r a i n i n g .
(iii)
T h e y a r e n a t u r a l l y u n a b l e to s i t i n any c a s e in w h i c h t h e l o c a l
a u t h o r i t y h a s an i n t e r e s t and s u c h c a s e s a r e f r e q u e n t .
(iv)
T h e i r C o u n c i l and C o m m i t t e e m e e t i n g s m a k e i t difficult for t h e m
to s i t r e g u l a r l y ,
(d)
T h a t J u s t i c e s h a v e n e t sufficient k n o w l e d g e of what t h e y a r e doing
and in p a r t i c u l a r that t h e r e i s t o o g r e a t d i s p a r i t y in the s e n t e n c e s they
impose.
(e)
T h a t t h e ex-officio J u s t i c e s ought to b e a b o l i s h e d a s r e c o m m e n d e d
by t h e L a b o u r G o v e r n m e n t s R o y a l C o m m i s s i o n b e c a u s e , a s t h e County
C o u n c i l s A s s o c i a t i o n t h e m s e l v e s s a i d to t h e C o m m i s s i o n : ­
1
" T h e A s s o c i a t i o n e n t e r t a i n no d o u b t t h a t , if any a p p r o a c h i s to be
m a d e to the i d e a l t h a t only t h e m o s t s u i t a b l e p e r s o n s a r e
a p p o i n t e d to t h e c o m m i s s i o n of t h e p e a c e , t h e n c h a i r m e n of
c o u n t y , b o r o u g h , u r b a n and r u r a l d i s t r i c t c o u n c i l s should c e a s e
to qualify for a d m i s s i o n to t h e l i s t m e r e l y by t h e i r a s s u m p t i o n
of t h e s e o f f i c e s .
T h e q u a l i t i e s w h i c h e n a b l e a c h a i r m a n of a
l o c a l a u t h o r i t y to p e r f o r m h i s d u t i e s with s u c c e s s a r c not of
n e c e s s i t y t h o s e r e q u i s i t e for t h e office of j u s t i c e of t h e p e a c e ,
a d d e d to which t h e r e i s t h e point t h a t in m a n y a r e a s t h e office
of c h a i r m a n i s a m a t t e r of r o t a t i o n r a t h e r t h a n of d i s t i n c t i v e
merit.
In any e v e n t , if a c h a i r m a n of a l o c a l a u t h o r i t y i s
s u i t a b l e for a p p o i n t m e n t a s a j u s t i c e of t h e p e a c e , t h e o r d i n a r y
p r o c e d u r e should siiffice to e n s u r e h i s c o n s i d e r a t i o n for t h a t
office".
-7­
My own c o n c l u s i o n s
21.
I h a v e r e a d not only t h e R e p o r t s but a l s o a l l t h e e v i d e n c e g i v e n
before both Royal C o m m i s s i o n s .
22.
On t h e 28th F e b r u a r y I had a m e e t i n g w h i c h I h a d c a l l e d of a l l
t h e C h a i r m e n and S e c r e t a r i e s of b o t h County and B o r o u g h A d v i s o r y
C o m m i t t e e s and 248 a t t e n d e d a n d we d i s c u s s e d t h e q u e s t i o n s r e f e r r e d
to a b o v e .
I h a v e s i n c e r e c e i v e d m a n y l e t t e r s f r o m thern e x p r e s s i n g
additional views.
T h e s e h a v e r a i s e d a n u m b e r of p r o b l e m s with
which I n e e d not t r o u b l e m y c o l l e a g u e s s u c h a s t h e a n o n y m i t y of
A d v i s o r y C o m m i t t e e s , t h e m e t h o d of s e l e c t i o n of C h a i r m e n of B e n c h e s ,
t h e m i n i m u m n u m b e r of s i t t i n g d a y s r e q u i r e d of J u s t i c e s , t h e h o l d i n g
of R e g i o n a l C o n f e r e n c e s of C h a i r m e n of A d v i s o r y C o m m i t t e e s , r e m o v a l s
f r o m one d i s t r i c t t o a n o t h e r a n d w h e t h e r p r o s p e c t i v e J u s t i c e s s h o u l d be
i n t e r v i e w e d a n d , if s o , b y w h o m .
23.
I h a v e h o w e v e r c o m e t o a n u m b e r of c o n c l u s i o n s b a s e d on m y
o b s e r v a t i o n s and e x p e r i e n c e b o t h at t h e B a r and while I h a v e h e l d office
as Lord Chancellor.
T h e s e conclusions a r e as follows:­
(i) In r e c e n t y e a r s t h e functions of J u s t i c e s of the P e a c e h a v e
i n c r e a s e d g r e a t l y b o t h i n v o l u m e and in difficulty, a n d i t
i s m o r e n e c e s s a r y t h a n e v e r t h a t t h o s e who a r e a p p o i n t e d
J u s t i c e s should b e w e l l qualified t o c a r r y out t h i s i m p o r t a n t
work,
(ii) T h e p a r a m o u n t q u a l i f i c a t i o n f o r the office of J u s t i c e i s t h a t a
p e r s o n should h a v e a j u d i c i a l t e m p e r a m e n t , p o s s e s s m o r e
t h a n a v e r a g e i n t e l l i g e n c e , enjoy the r e s p e c t and c o n f i d e n c e of
t h e c o m m u n i t y in which he l i v e s and p r e f e r a b l y h a v e s h o w n a
d e s i r e for p u b l i c s e r v i c e i n s o m e field.
(iii) It i s s a t i s f a c t o r y t h a t it i s now g e n e r a l l y a c c e p t e d (a) t h a t a
m a n should not b e a p p o i n t e d a J u s t i c e f o r s e r v i c e s r e n d e r e d
i n s o m e o t h e r f i e l d and (b) t h a t n o a t t e n t i o n should b e p a i d t o
what h i s r e l i g i o n i s .
(iv) It i s i m p o r t a n t t h a t J u s t i c e s should b e d r a w n f r o m a l l s o c i a l
c l a s s e s in the c o m m u n i t y so that whoever a p p e a r s before a
B e n c h w i l l p r o b a b l y h a v e s o m e o n e o n it w h o i s f a m i l i a r with
h i s h a b i t s of thought a n d s p e e c h and h i s e c o n o m i c and l i v i n g
c o n d i t i o n s . J u s t i c e s a r e not a t p r e s e n t s o r e p r e s e n t a t i v e a n d
I t h i n k it i m p o r t a n t t h a t s t e p s should be t a k e n t o m a k e t h e m s o .
(v) A d v i s o r y C o m m i t t e e s a r e confused a s t o w h e t h e r the
L o r d C h a n c e l l o r w a n t s t h e m t o c o n c e n t r a t e on c l a s s o r on
party politics.
N o d o u b t a t one t i m e it w a s b r o a d l y t h e s a m e
t h i n g , t h e p r o p e r t i e d c l a s s b e i n g C o n s e r v a t i v e , the m i d d l e
c l a s s L i b e r a l and the m a n i n t h e c l o t h c a p L a b o u r .
Today the
m a n u a l w o r k e r m a y w e l l t u r n out to b e a s t a u n c h C o n s e r v a t i v e
a n d t h e yoting e l e c t r o n i c s c i e n t i s t L a b o u r .
-8­
I c a n n o t h e l p t h i n k i n g m y s e l f t h a t a s p r e a d of t h e s o c i a l c l a s s e s
is m u c h m o r e i m p o r t a n t than any exact equilibrium between
party political affiliations.
M o r e o v e r , an e x c e s s i v e
p r o p o r t i o n of l o c a l p a r t y p o l i t i c i a n s on a B e n c h g i v e s t h e
i m p r e s s i o n t h a t t h e B e n c h i s s u b s t a n t i a l l y t h e p e r q u i s i t e of
the political p a r t i e s .
T h e r e a r e , h o w e v e r , a n u m b e r of d i f f i c u l t i e s i n o b t a i n i n g a
sufficient: s p r e a d of s o c i a l c l a s s e s b e c a u s e ; ­
(a) T h e l o w e r i n c o m e g r o u p s a r e m u c h l e s s i n c l i n e d t o
u n d e r t a k e p u b l i c w o r k t h a n t h e y u s e d t o b e ("What d o I
g e t out of i t ? " ) .
According to a survey recently made
in a r e p r e s e n t a t i v e l a r g e v i l l a g e , t h e p e r c e n t a g e i n
income groups doing public work has b e e n :
1955
1965
% change
Upper
Middle
Lower
44. 0
34.5
-9.5
24.5
38.5
+14. 0
31.5
27. 0
-4.5
(b) It i s n o t e a s y for t h e w e e k l y w a g e e a r n e r t o get t h e
n e c e s s a r y t i m e off i n a t i m e of full e m p l o y m e n t .
E m p l o y e r s n e e d e n c o u r a g e m e n t about t h i s ; a n d t h e
G o v e r n m e n t and Nationalised I n d u s t r i e s should set a
better example.
Civil S e r v a n t s a r e usually not allowed
m o r e t h a n t w e l v e d a y s off a yea.r f o r p u b l i c w o r k a n d
t h e s a m e r u l e i s a p p l i e d b y t h e N a t i o n a l C o a l B o a r d and
by t h e T r a n s p o r t C o m m i s s i o n .
(c) T h e p e c u n i a r y l o s s m a y b e t o o g r e a t .
J u s t i c e s -should
have financial loss allowances, similar to those payable
to local authority m e m b e r s .
The Home Affairs Committee
a g r e e d t h a t , p e n d i n g c o n s i d e r a t i o n of t h e r e p o r t of t h e
Ivlaud C o m m i t t e e on a l l o w a n c e s for e l e c t e d m e m b e r s of
local a u t h o r i t i e s , J u s t i c e s should be entitled t o financial
l o s s a l l o w a n c e s on t h e b a s i s a p p l i c a b l e t o m e m b e r s of
l o c a l a u t h o r i t i e s , t h e p r o b l e m of s e l f - e m p l o y e d a n d o t h e r s
n o t r e a c h e d by t h i s a l l o w a n c e b e i n g c o n s i d e r e d i n
c o n j u n c t i o n with t h e sirnila.r p r o b l e m s in t h e l o c a l
g o v e r n m e n t field.
(d) T h e t h r e e - m i l e l i m i t for s u b s i s t e n c e a l l o w a n c e s i s a
g r e a t h a n d i c a p f o r J u s t i c e s who a r e w e e k l y w a g e e a r n e r s .
T h e H o m e A f f a i r s C o m m i t t e e w a s d i s p o s e d to a g r e e t o
t h e a b o l i t i o n of t h i s l i m i t p r o v i d e d t h a t t h i s could b e done
on g r o u n d s s p e c i a l t o J u s t i c e s w h i c h would not affect
subsistence allowances generally.
J u s t i c e s can in fact
b e d i s t i n g u i s h e d f r o m m e m b e r s of l o c a l g o v e r n m e n t b o d i e s
b e c a u s e the C o u r t s cannot r e s u m e after the luncheon
a-djaurnment u n l e s s a l l t h e m e m b e r s a r e p r e s e n t .
C o n s e q u e n t l y it i s difficult f o r J u s t i c e s t o go h o m e , and
t h o s e who c a n n o t afford t o l u n c h in a r e s t a u r a n t a r e
c o m p e l l e d t o go t o a p u b l i c h o u s e v/here t h e y m a y b e
t h o u g h t t o b e a s s o c i a t i n g with p e r s o n s a p p e a r i n g b e f o r e
them.
-9CONFSDENTBAL
(vii) I would l i k e t o s e e t h e p r e s e n t r e t i r i n g a g e f o r J u s t i c e s g r a d u a l l y r e d u c e d f r o m 75 t o 7 0 . (viii) One of t h e p r i n c i p a l c o m p l a i n t s w h i c h I r e c e i v e f r o m m e m b e r s
of t h e p u b l i c a b o u t M a g i s t r a t e s ' C o u r t s i s t h a t t h e s e n t e n c i n g
is unsatisfactory - either because the penalties imposed a r e
t o o g r e a t o r t o o s m a l l o r b e c a u s e t h e s e n t e n c e s i m p o s e d by
different Courts a r e inconsistent.
It i s n o t open t o m e , i n
m y e x e c u t i v e c a p a c i t y , t o give d i r e c t i o n s t o M a g i s t r a t e s on
t h e l e v e l of s e n t e n c e s w h i c h t h e y a r e t o i m p o s e .
I propose,
h o w e v e r , to d e a l with this p r o b l e m by organising Sentencing
C o n f e r e n c e s t h r o u g h o u t t h e c o u n t r y on t h e l i n e s of t h e
C o n f e r e n c e s o r g a n i s e d by t h e -Lord Chief J u s t i c e f o r H i g h
C o u r t J u d g e s , R e c o r d e r s and C h a i r m e n of Q u a r t e r S e s s i o n s .
A t t h e s e C o n f e r e n c e s a l l J u s t i c e s in e a c h a r e a would b e
r e q u i r e d t o c o n s i d e r d i f f e r e n t t y p e s of c a s e and t o c o m p a r e
The Conferences
t h e s e n t e n c e s w h i c h t h e y would i m p o s e .
would b e a t t e n d e d , i n a n a d v i s o r y c a p a c i t y , by p e r s o n s who
a r e e x p e r t in t h e P r o b a t i o n S e r v i c e , P r i s o n s and o t h e r
i n s t i t u t i o n s and in p e n o l o g y in g e n e r a l , and they would b e
p r e s i d e d over b y a s e n i o r C h a i r m a n of Q u a r t e r S e s s i o n s .
Conditional approval
(ix) E x officio J u s t i c e s o u g h t t o b e a b o l i s h e d .
w a s g i v e n t o t h i s p r o p o s a l by t h e H o m e A f f a i r s C o m m i t t e e a t
t h e i r m e e t i n g on 3 r d D e c e m b e r , 1965 (H(65) 28th M e e t i n g ) .
A l i s t of t h e offices c o n c e r n e d i s c o n t a i n e d i n m y m e m o r a n d u m
to t h e C o m m i t t e e (H(65) 129). T h e C a b i n e t , h o w e v e r , a t t h e i r
m e e t i n g on 9th D e c e m b e r , d e c i d e d t o d e f e r f u r t h e r c o n s i d e r a ­
t i o n of t h i s q u e s t i o n u n t i l they h a d h a d a n o p p o r t u n i t y t o
c o n s i d e r m y p r o p o s a l s f o r i m p r o v i n g t h e s y s t e m of s e l e c t i n g
J u s t i c e s (C. C. (65) 69th C o n c l u s i o n s , M i n u t e 5 ) . It i s q u i t e
a n o m a l o u s t h a t t h e r e s h o u l d n o w b e t w o g r o u p s of J u s t i c e s ,
one of which h a v e b e e n a p p o i n t e d on t h e i r m e r i t s , h a v e u n d e r ­
gone a c o u r s e of t r a i n i n g and s i t r e g u l a r l y , a n d a n o t h e r g r o u p
who h a v e not b e e n a p p o i n t e d on t h e i r m e r i t s , u n d e r g o n o
t r a i n i n g and cannot s i t r e g u l a r l y .
There are more
Out of a t o t a l
C o n s e r v a t i v e t h a n L a b o u r e x officio J u s t i c e s .
of 1,4-70 l o c a l a u t h o r i t i e s only 364 a r e a c t u a l l y c o n t r o l l e d b y
Labour.
F o l l o w i n g t h e m e e t i n g of t h e H o m e A f f a i r s C o m m i t t e e on
3 r d D e c e m b e r , t h e M i n i s t e r of H o u s i n g a n d L o c a l G o v e r n m e n t
i n f o r m e d t h e l o c a l a u t h o r i t y o r g a n i s a t i o n s of m y p r o p o s a l t o
a b o l i s h t h e ex officio J u s t i c e s ,
T h e County C o u n c i l s a n d t h e
G r e a t e r London C o u n c i l w e r e p r e p a r e d t o a c c e p t t h e a b o l i t i o n
of a l l l o c a l g o v e r n m e n t e x officio J u s t i c e s , b u t t h e M u n i c i p a l
C o r p o r a t i o n s a n d t h e U r b a n and R u r a l D i s t r i c t C o u n c i l s w e r e
opposed to abolition, though they r e c o g n i s e d that s o m e
r e s t r i c t i o n should b e p l a c e d on e v e r y o n e who b e c a m e a J u s t i c e
and who did not b o t h c o m p l e t e a c o u r s e of i n s t r u c t i o n a n d a l s o
u n d e r t a k e to sit r e g u l a r l y .
I have s e e n r e p r e s e n t a t i v e s of
t h e l a t t e r t h r e e a u t h o r i t i e s ' a s s o c i a t i o n s and h a v e d i s c u s s e d
t h e q u e s t i o n with t h e m .
-10­
(x) T h e k e y t o t h e p r o b l e m of a p p o i n t i n g M a g i s t r a t e s l i e s i n t h e
Advisory Committees.
The Advisory Committee system was
i n t r o d u c e d following 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 of 1910, and i t w a s c a r e f u l l y r e v i e w e d a n d
a p p r o v e d by t h e R o y a l C o m m i s s i o n of 1 9 4 6 - 4 8 .
I a m convinced
that this is the b e s t s y s t e m for appointing J u s t i c e s that c a n b e
devised, but I a m equally convinced that the existing Advisory
Committees require fairly drastic reorganisation.
They a r e
m u c h t o o l i m i t e d in t h e i r s c o p e a n d m o s t of t h e m s h o w l i t t l e
i n i t i a t i v e in s e e k i n g c a n d i d a t e s f r o m a l l s e c t i o n s of t h e l o c a l
community.
M o r e o v e r , m o s t of t h e m t e n d t o b e s e l f ­
perpetuating because the L o r d Chancellor h a s b e e n obliged to
r e l y v e r y l a r g e l y upon t h e C h a i r m a n of e a c h C o m m i t t e e i n
finding p e r s o n s t o s e r v e a s m e m b e r s of t h e C o m m i t t e e .
I p r o p o s e t o c a r r y out a t h o r o u g h r e v i e w of a l l t h e C o m m i t t e e s
t h r o u g h o u t t h e c o u n t r y , to g e t r i d of t h e d e a d w o o d , a n d t o
r e c o n s t i t u t e t h e C o m m i t t e e s on t h e following l i n e s s­
(a) E a c h A d v i s o r y C o m m i t t e e should c o n s i s t of a t l e a s t o n e
m e m b e r of e a c h of t h e l e a d i n g p o l i t i c a l p a r t i e s ; b u t i t
s h o u l d a l s o i n c l u d e p e r s o n s who a r e not a c t i v e p o l i t i c a l l y
b u t a r e d r a w n f r o m d i f f e r e n t w a l k s of l i f e , and i n
p a r t i c u l a r it should i n c l u d e p e r s o n s s u c h a s D o c t o r s who
i n t h e i r w o r k m e e t l a r g e n u m b e r s of m e n a n d w o m e n of a l l
social classes.
(b) No m e m b e r of a n A d v i s o r y C o m m i t t e e s h o u l d n o r m a l l y s e r v e
for m o r e than six y e a r s .
It m a y b e d e s i r a b l e t o m o d i f y
t h i s r u l e in t h e c a s e of C h a i r m e n b u t e v e n t h e y ought t o
c h a n g e m o r e often t h a n t h e y d o now. A s r e g a r d s County
C o m m i t t e e s , a l l of t h e s e h a v e a s t h e i r C h a i r m e n t h e
L o r d s -Lieutenant of t h e C o u n t i e s .
This, hov/ever, i s a
m a t t e r of l o n g - s t a n d i n g c u s t o m .
I p r o p o s e in f u t u r e t o
a p p o i n t s o m e o n e e l s e , i n s t e a d of t h e L o r d L i e u t e n a n t , a s
C h a i r m a n of t h e County C o m m i t t e e if I t h i n k t h a t t h i s i s
i n t h e b e s t i n t e r e s t of t h e a d m i n i s t r a t i o n of j u s t i c e in t h a t
particular area.
(c) C o m m i t t e e s m u s t b e m a d e t o t a k e a c t i v e s t e p s t o s e e k
s u i t a b l e c a n d i d a t e s a m o n g a l l s e c t i o n s of t h e l o c a l
population.
The L o r d C h a n c e l l o r ' s Office s h o u l d a l s o
a p p r o a c h organisations throughout t h e country and a s k for
recommendations.
(d) T h e L o r d C h a n c e l l o r should e x e r c i s e a m u c h c l o s e r s u p e r ­
v i s i o n over the Advisory C o m m i t t e e s and t h e i r work,
(xi) T h e m a i n r e a s o n f o r t h e u n s a t i s f a c t o r y c o n d i t i o n of t h e p r e s e n t
Advisory Committee system is that in the past the Lord
Chancellor h a s not been able t o e x e r c i s e adequate s u p e r v i s i o n
This
of t h e C o m m i t t e e s owing to t h e s m a l l n . e s s of h i s staff.
c o n s i s t s of t h e S e c r e t a r y of C o m m i s s i o n s , o n e o t h e r l a w y e r ,
one t r a i n i n g o f f i c e r , t h r e e E x e c u t i v e O f f i c e r s a n d s e c r e t a r i e s .
-11­
T o o r g a n i s e t h e p r o v i s i o n of t r a i n i n g c o u r s e s for J u s t i c e s , t o
m a i n t a i n a n a d e q u a t e s y s t e m of r e c o r d s of J u s t i c e s t h r o u g h o u t
t h e c o u n t r y , t o d e a l with a n a v e r a g e of 900 a p p o i n t m e n t s of n e w
J u s t i c e s a n d t h e r e m o v a l of s o m e 200 e x i s t i n g J u s t i c e s e v e r y
y e a r , and t o m a i n t a i n a c l o s e (supervision o v e r m y 192 A d v i s o r y
C o m m i t t e e s t h r o u g h o u t E n g l a n d and Wales, m y p r e s e n t staff
i s wholly i n a d e q u a t e .
In a d d i t i o n t o t h i s w o r k t h e y a l s o h a v e
t o d e a l w i t h t h e a p p o i n t m e n t a n d r e m u n e r a t i o n of C h a i r m e n and
Deputy C h a i r m e n of Q u a r t e r S e s s i o n s , R e c o r d e r s , Deputy
R e c o r d e r s , A s s i s t a n t R e c o r d e r s j and M e t r o p o l i t a n and
P r o v i n c i a l S t i p e n d i a r y M a g i s t r a t e s , a s well a s s o m e 1,900
C h a i r m e n a n d m e m b e r s of t e n d i f f e r e n t k i n d s of A d m i n i s t r a t i v e
T r i b u n a l s a n d n o l e s s t h a n 5 , 2 0 0 G e n e r a l C o m m i s s i o n e r s of
I n c o m e T a x , i n a d d i t i o n t o d e a l i n g with q u e s t i o n s r e l a t i n g to
the C e n t r a l C r i m i n a l Court and Commonwealth l e g a l m a t t e r s .
It would n o t b e p o s s i b l e f o r m e t o c a r r y out m y p r o p o s a l s
r e l a t i n g t o J u s t i c e s u n l e s s t h i s s e c t i o n of m y Depa.rtm.ent w a s
i n c r e a s e d b y a t l e a s t two m o r e o f f i c e r s of a d m i n i s t r a t i v e
g r a d e with t h e n e c e s s a r y s e c r e t a r i a l a s s i s t a n c e .
(xii) If m y p r o p o s a l s a r e a c c e p t e d t h e a d d i t i o n a l c o s t of t h e staff and a d m i n i s t r a t i o n i n m y D e p a r t m e n t will be not m o r e t h a n £ 9 , 000 a y e a r . It i s not p o s s i b l e t o give a n e x a c t f i g u r e for t h e c o s t i n v o l v e d
in g r a n t i n g f i n a n c i a l l o s s a l l o w a n c e s t o J u s t i c e s n o r in t h e
r e m o v a l of t h e t h r e e - m i l e l i m i t , b e c a u s e it i s not known how
m a n y p e r s o n s would apply f o r t h e a l l o w a n c e s .
The Home
S e c r e t a r y and I e s t i m a t e that the probable additional cost
r e s u l t i n g f r o m t h e r e m o v a l of t h e t h r e e - m i l e l i m i t would be in
t h e n e i g h b o u r h o o d of £5 0, 000 a y e a r , and t h a t t h e g r a n t of a
f i n a n c i a l l o s s a l l o w a n c e would c o s t a b o u t £ 1 0 0 , 0 0 0 a y e a r .
T h e f i g u r e of £ 100, 000 i s b a s e d on t h e a s s u m p t i o n t h a t about
10 p e r c e n t o£ t h e J u s t i c e s would d r a w t h e a l l o w a n c e j b u t t h e
T r e a s u r y t h i n k t h a t 5 0 p e r c e n t would b e m o r e r e a l i s t i c a s a
longer t e r m a s s e s s m e n t .
If t h e y a r e r i g h t , t h e f i g u r e could
b e a s m u c h a s £ 5 0 0 , 000.
K all J u s t i c e s w e r e to d r a w the
a l l o w a n c e t h e c o s t m i g h t a m o u n t t o £ 1 m i l l i o n ; b u t t h i s could
n o t in f a c t h a p p e n b e c a u s e a l l J u s t i c e s would not b e e l i g i b l e
for the allowance.
S u m m a r y of R e c o m m e n d a t i o n s
2 4 .
My p r o p o s a l s m a y be s u m m a r i s e d a s follows:­
(1) J u s t i c e s of t h e P e a c e , who m u s t b e well q u a l i f i e d for
t h e w o r k , should be d r a w n f r o m a l l s o c i a l c l a s s e s i n t h e
community.
(2)
T o a c h i e v e t h i s -
\\
(a) T h e A d v i s o r y C o m m i t t e e s y s t e m should b e
r e o r g a n i s e d and t h e C o m m i t t e e s p l a c e d u n d e r
c l o s e s u p e r v i s i o n by t h e L o r d C h a n c e l l o r ' s
Department.
-12-
CONFIDE NTS, A L
(b) E m p l o y e r s should b e e n c o u r a g e d t o a l l o w t h e i r
e m p l o y e e s m o r e t i m e off t o a t t e n d C o u r t ; a n d t h e
G o v e r n m e n t itself s h o u l d m a k e it e a s i e r f o r C i v i l
Servants to accept appointment a s M a g i s t r a t e s ,
(c)
J u s t i c e s should be entitled to financial l o s s a l l o w a n c e s ,
(d) T h e t h r e e - m i l e l i m i t f o r s u b s i s t e n c e a l l o w a n c e s should
be abolished,
(3) T h e r e t i r i n g a g e f o r J u s t i c e s s h o u l d b e r e d u c e d g r a d u a l l y
f r o m 75 t o 70,
(4)
E x officio J u s t i c e s should b e abolished,,
(5) S e n t e n c i n g C o n f e r e n c e s s h o u l d b e o r g a n i s e d by t h e
Lord Chancellor s Department throughout the country
at regular intervals.
!
(6) T o e n a b l e t h e L o r d C h a n c e l l o r t o i m p r o v e t h e s e l e c t i o n of
J u s t i c e s of the P e a c e h e s h o u l d b e given a s m a l l i n c r e a s e
i n staff.
i
R e c o m m e n d a t i o n s (2) (c) and ( d ) , (3) a n d (4) would r e q u i r e
legislation.
H o u s e of L o r d s , S. W, 1.
4th J u l y , 1966
.13­