AS TO THE ADMISSIBILITY OF
Application No. 25895/94
by Dennis Gordon TOMSETT
against the United Kingdom
The European Commission of Human Rights (First Chamber) sitting
in private on 4 September 1996, the following members being present:
Mrs. J. LIDDY, President
MM. M.P. PELLONPÄÄ
E. BUSUTTIL
A. WEITZEL
C.L. ROZAKIS
G.B. REFFI
B. CONFORTI
N. BRATZA
I. BÉKÉS
G. RESS
A. PERENIC
C. BÎRSAN
K. HERNDL
Mrs. M.F. BUQUICCHIO, Secretary to the Chamber
Having regard to Article 25 of the Convention for the Protection
of Human Rights and Fundamental Freedoms;
Having regard to the application introduced on 30 September 1994
by Dennis Gordon TOMSETT against the United Kingdom and registered on
9 December 1994 under file No. 25895/94;
Having regard to:
- the reports provided for in Rule 47 of the Rules of Procedure of
the Commission;
- the observations submitted by the respondent Government on
24 August 1995 and the observations in reply submitted by the
applicant on 24 November 1995;
Having deliberated;
Decides as follows:
THE FACTS
The applicant is a British citizen born in 1924. He lives in
St. Andrew's Hospital, Northampton, and is represented before the
Commission by Ms. E. Needham, solicitor, of Messrs. Galbraith Branley,
London. The facts of the case, as submitted by the parties, may be
summarised as follows.
The particular circumstances of the case
The applicant was sentenced to a discretionary life sentence and
concurrent shorter periods on 11 October 1963 for buggery and causing
grievous bodily harm to a 14-year old boy. He was transferred to a
special hospital under Sections 72 and 74 of the Mental Health Act 1959
(subsequently Sections 47 and 49 of the Mental Health Act 1983) in
1965, and was detained in various mental hospitals until his formal
release in 1994.
The "tariff" in the applicant's case, that is the period which
represented the punishment aspect of his case, expired in 1973.
In 1989 the applicant was seen talking to a boy of about 11
outside the hospital gate.
In 1990 a Mental Health Review Tribunal found that the applicant
was not suffering from mental disorder of a nature or degree to make
it appropriate for him to be liable to be detained in a hospital for
treatment, but the Home Office did not authorise his conditional
discharge.
In 1991 the Parole Board asked for a firm hostel-based plan to
be formulated, and for his case to be referred back to them thereafter,
but no hostel became available.
On 31 May 1993 the Home Office stated in reply to a letter of
29 March 1993 from the applicant's solicitors that, because he had been
transferred to a special hospital under the mental health legislation,
his detention and release were governed by the 1983 Act. The Home
Office considered that a transferred prisoner was:
"only entitled to be treated as a prisoner where the 1983 Act
says that he may be, eg under Section 50(i)(b) which allows the
Home Secretary to exercise any power of release on licence which
would have been available had the transferred prisoner been in
prison....Section 34 of the [Criminal Justice Act 1991],
containing the provisions for review and release by the Parole
Board of discretionary life prisoners [do not] automatically
appl[y] in the case of a prisoner transferred to special
hospital."
The Home Office continued that the Secretary of State had powers
to release where he agreed with the opinion of the authorities which
reviewed continuing detention. On return to prison, Section 34 would
generally apply again.
On 24 September 1993 the applicant's solicitors applied for
judicial review of the letter of 31 May 1993. On 15 October 1993 the
Secretary of State referred the case to a Discretionary Lifer Panel of
the Parole Board (a "DLP"), and on 22 October 1993 the High Court made
a declaration that the Secretary of State's policy not to certify
discretionary life prisoners under paragraph 9 of Schedule 12 to the
Criminal Justice Act 1991 on the ground that they had been transferred
to hospital under the Mental Health Act 1983 was unlawful.
On 28 March 1994 a Mental Health Review Tribunal again found that
the applicant did not suffer psychopathic disorder of such a degree as
to require his continued treatment in hospital. It found that, if
subject to a restriction order, he would be entitled to be
conditionally discharged, and recommended that, if he was not to be
discharged, he should be detained in hospital. In concluding that he
ought to be entitled to a conditional discharge, it considered that
such discharge should be deferred until the following conditions were
met:
1. That the applicant reside at a staffed residential home;
2. That he remain under the supervision of a psychiatrist;
3. That he remain under the supervision of a social worker or
probation officer; and
4. That he remain liable to recall to hospital.
The applicant was not discharged.
The applicant was heard by the DLP on 14 June 1994. The panel
considered that it was no longer necessary for the protection of the
public that the applicant be confined, and it directed his release on
a life licence. One of the conditions of the licence was that the
applicant was to continue to reside at St. Andrew's Hospital and
another was that he should not reside in the same household as any
child under 16 years of age.
Relevant domestic law
Under Section 47 of the Mental Health Act 1983 ("the 1983 Act"),
the Secretary of State may transfer a person serving a sentence of
imprisonment to hospital if he is satisfied that the person is
suffering from mental illness, psychopathic disorder, severe mental
impairment or mental impairment, and that the mental disorder is of a
nature or degree which makes it appropriate for him to be detained in
a hospital for medical treatment, and, in the case of psychopathic
disorder or mental impairment, that such treatment is likely to
alleviate or prevent a deterioration of the condition. Section 47
replaces Section 72 of the Mental Health Act 1959. A transfer under
Section 47 of the 1983 Act is called a "transfer direction", and has
the same effect as if a hospital order had been made under
Section 37 (1) of the 1983 Act (that is, where a court convicts a
person and, instead of sentencing him, orders his detention in
hospital).
At the same time as making a transfer direction, the Secretary
of State may also make a "restriction direction" under Section 49 of
the 1983 Act. A restriction direction has the same effect as a
restriction order made by a court under Section 41 of the 1983 Act on
conviction, namely that the granting of leave of absence, transfer to
another hospital, and discharge from hospital, are only exercisable
with the consent of the Secretary of State. Section 49 derives from
Section 74 of the Mental Health Act 1959.
A transferred life prisoner subject to restriction directions can
be discharged from hospital in three possible ways. Each can be
initiated only by the Secretary of State.
1. Section 42 (2) of the 1983 Act gives the Secretary of State
power, if he thinks fit, by warrant to discharge the patient
either absolutely or subject to conditions.
2. Section 50 of the 1983 Act provides that where the Secretary of
State is notified by the responsible medical officer, and other
registered practitioner or a Mental Health Review Tribunal that
the person no longer requires treatment in hospital for mental
disorder, or that no effective treatment for the disorder can be
given in the hospital, the Secretary of State may remit the
person to a prison or to a different institution, or he may
exercise any power of releasing or discharging him which would
have been exercisable if he had been so remitted.
3. Under Section 74 of the 1983 Act,
"1. Where an application to a Mental Health Review Tribunal is
made by a restricted patient who is subject to a restriction
direction, or where the case of such a patient is referred to
such a tribunal, the tribunal -
(a) shall notify the Secretary of State whether, in their
opinion, the patient would, if subject to a restriction order,
be entitled to be absolutely or conditionally discharged under
Section 73 ...; and
(b) if they notify him that the patient would be entitled to be
conditionally discharged, may recommend that in the event of his
not being discharged under this section he should continue to be
detained in hospital."
Section 73 of the 1983 Act provides that the tribunal must direct
conditional discharge if they are satisfied that he is not suffering
from mental illness or disorder of a type which makes it appropriate
for the person to be detained in a hospital for medical treatment, or
that it is not necessary for the health or safety of the patient or for
the protection of other persons that he should receive such treatment,
and they believe that it is appropriate for the patient to remain
liable to be recalled to hospital for further treatment.
In 1985, the Home Secretary announced that life sentence
prisoners who had been transferred to hospital would normally be
discharged under Section 50 of the 1983 Act rather than Sections 42 (2)
or 74 (2). This enables release on life licence with life-long control
rather than the possibility of eventual absolute discharge by the
Secretary of State. The policy was found to be lawful in the case of
R. v. Secretary of State for the Home Department ex parte Stroud
(16 July 1992).
Section 34 of the Criminal Justice Act 1991 provides that where
a discretionary life prisoner has served his tariff (that is, the
"punishment" part of his sentence), and the Parole Board is satisfied
that it is no longer necessary for the protection of the public that
he should be detained and has directed his release, it is the duty of
the Secretary of State to release him. Under Paragraph 9 of
Schedule 12, which is a transitional provision of the 1991 Act, the
Secretary of State can apply the provisions of Section 34 to
discretionary life prisoners who were sentenced before Section 34 of
the 1991 Act came into force on 10 October 1992 by issuing a
certificate that, if the 1991 Act had been in force when the person was
sentenced, Section 34 would have been applied.
In 1994 the Court of Appeal found that persons who continue to
require treatment in hospital had no right of access to the Parole
Board under Section 34 of the 1991 Act.
COMPLAINTS
The applicant alleges a violation of Article 5 of the Convention.
He states that from the time his tariff expired in 1973 until the
hearing in 1994 he was deprived of any review of the legality of his
detention by a tribunal independent of the executive empowered to order
his release. He sees a violation of Article 5 para. 4 in the denial
of a prompt reference to a DLP, and in the fact that the decision to
refer to a panel was presented as the exercise of a discretion, rather
than a matter of a legal duty to the applicant.
He further complains that from the time that he was found to be
no longer mentally disordered in 1990, he was unlawfully detained in
that his continued detention could no longer be justified on grounds
of tariff, mental disorder or dangerousness.
Finally, he considers that the Convention is violated by the
continuing absence of a mechanism for securing an absolute discharge
from prison.
PROCEEDINGS BEFORE THE COMMISSION
The application was introduced on 30 September 1994 and
registered on 9 December 1994
On 17 May 1995 the Commission decided to communicate the
application to the respondent Government.
The Government's written observations were submitted on 24 August
1995. The applicant replied on 24 November 1995.
On 24 October 1995 the Commission granted the applicant legal
aid.
THE LAW
The applicant alleges violations of Article 5 (Art. 5) of the
Convention. He complains that his detention was not compatible with
Article 5 para. 1 (Art. 5-1) of the Convention from 3 September 1990,
when the Mental Health Review Tribunal found that he was not then
suffering from a mental disorder of a nature or degree which required
his continued detention in hospital for treatment. Under Article 5
para. 4 (Art. 5-4) of the Convention the applicant claims that there
was no "court" which could determine the lawfulness of his detention
from the expiry of his tariff in 1973 until 14 June 1994, when a
Discretionary Lifer Panel of the Parole Board directed the Secretary
of State to release the applicant on life licence.
Article 5 (Art. 5) of the Convention provides so far as relevant
as follows.
"1. Everyone has the right to liberty and security of person.
No one shall be deprived of his liberty save in the following
cases and in accordance with a procedure prescribed by law:
a. the lawful detention of a person after conviction by
a competent court ...
e. the lawful detention of persons for the prevention of
the spreading of infectious diseases, of persons of unsound mind,
alcoholics or drug addicts or vagrants ...
4. Everyone who is deprived of his liberty by arrest or
detention shall be entitled to take proceedings by which the
lawfulness of his detention shall be decided speedily by a court
and his release ordered if the detention is not lawful."
1. To the extent that the applicant complains of the absence of a
body which had the power to order his release, the Commission recalls
that in accordance with Article 26 (Art. 26) of the Convention, it may
only deal with matters in which a final decision is given less than six
months before introduction of the application. Where an applicant
complains about a state of affairs, and in the absence of domestic
remedies, the six months runs from the date on which the state of
affairs ends (cf. No. 6852/74, Dec. 5.12.78, D.R. 15 p. 5).
In the present case, it became clear at the latest on 15 October
1993 that the applicant's case would be transferred to a Discretionary
Lifer Panel, and the absence of access to a body with power to order
his release therefore ended then. However, the application to the
Commission was only introduced on 30 September 1994, that is, more than
six months after 15 October 1993.
It follows that this part of the application must be rejected
under Article 27 para. 3 (Art. 27-3) of the Convention.
2. As to the remainder of the application, the Government submit
that the applicant's detention was authorised by the life sentence
imposed in October 1963. They point out that it is clear from the
domestic case-law that the applicant continued to serve his life
sentence after the tribunal's 1990 finding, even though he remained in
hospital, and add that once the tribunal had notified the Secretary of
State that the applicant no longer required treatment in hospital for
mental disorder, the Secretary of State was entitled to remit the
applicant to prison and to deal with him there as if he had not been
removed to hospital, or to release or discharge him under supervision
which could have been exercisable as if he had been remitted to prison.
The only explanation for these powers is, they submit, that the
authority for the applicant's continued detention flowed from his
sentence of life imprisonment. They further add that a certificate was
eventually issued to the effect that Section 34 of the 1991 Act was to
apply. Accordingly, and referring to the judgment of the Court in the
Weeks case (Eur. Court HR, Weeks v. the United Kingdom judgment of
2 March 1987, Series A no. 114) the Government regard the applicant's
detention as justified under Article 5 para. 1 (a) (Art. 5-1-a) of the
Convention.
In connection with Article 5 para. 4 (Art. 5-4) of the
Convention, the Government consider that in domestic terms the
applicant was entitled to a review by a Discretionary Lifer Panel once
the Secretary of State had issued the certificate applying Section 34
of the 1991 Act to his case. Under the Convention, they submit that
he was entitled to a review by a DLP once the Government had had the
opportunity to implement the Court's Thynne Wilson and Gunnell judgment
(Eur. Court HR, Thynne, Wilson and Gunnell v. the United Kingdom
judgment of 25 October 1990, Series A no. 190). They do not accept
that he was entitled to a review before that date because he could have
brought his own application to the Commission, but did not do so. The
Government accept that there was a period of one year between the
coming into force of the 1991 Act (on 1 October 1992) and the issue of
the certificate applying Section 34 of that Act. They agree that the
delay was regrettable, but ascribe it to the wholly exceptional
circumstances: after the Thynne Wilson and Gunnell judgment, the
Government had to introduce primary legislation and complex rules, had
to deal with the temporary backlog created by the large number of
existing cases to whom the new arrangements applied, and all the
categories to which the rules applied had to be identified. The
Government consider that once the category of prisoners including the
applicant had been identified, certification and DLP hearings took
place without undue delay: the applicant was issued with a certificate
within two and a half weeks of the Government being notified of the
grant of leave to move for judicial review, and the DLP hearing took
place just eight months after the certificate was issued. The eight
months includes the 23 week timetable established by the Parole Board
Rules 1992 for preparation and disclosure of evidence for the DLP.
The applicant maintains his claims under Article 5 para. 1
(Art. 5-1) of the Convention. In particular, he considers that there
was no justification for continued detention after 1990: his detention
in hospital was not justified because he was not "suffering from mental
disorder of a nature or degree to make it appropriate for him to be
liable to be detained in a hospital", and his detention in any
custodial institution was not justifiable once the Parole Board had
found in 1991 that the applicant could and should be transferred to a
hostel for a one-month period. The Parole Board thereby found that in
principle the applicant's continued detention was not justified on
grounds of dangerousness. The applicant also submits that in any
event, his detention was in reality a form of Article 5 para. 1 (e)
(Art. 5-1-e) detention - the original discretionary life sentence was
premised in part on mental instability, and that instability was also
the reason for the applicant's transfer to Broadmoor in 1965. Once the
Tribunal had found that the applicant's mental condition had improved
sufficiently to merit a conditional discharge, there was no
justification for his continued detention, and he should have been
released.
Under Article 5 para. 4 (Art. 5-4) of the Convention, the
applicant considers that it is clear that he did not have a review
complying with Article 5 para. 4 (Art. 5-4) until June 1994, and that
the only question is whether he should have had one in 1975, when his
tariff expired, or in September 1990, when his mental disorder no
longer justified continued detention under the Mental Health Act in
September 1990. He points out that even when, in October 1992, the
discretionary lifer system was introduced, he was denied certification
and reference to a DLP because the Government policy was that no
discretionary lifers were entitled to be referred to a DLP.
The Commission finds, in the light of the parties' submissions,
that this part of the application raises complex and serious issues
under the Convention which require determination on their merits. It
follows that it cannot be dismissed as manifestly ill-founded within
the meaning of Article 27 para. 2 (Art. 27-2) of the Convention. No
other ground for declaring it inadmissible has been established.
For the these reasons, the Commission, unanimously,
DECLARES INADMISSIBLE the applicant's complaint concerning the
absence of a tribunal with power to release him;
DECLARES ADMISSIBLE, without prejudging the merits, the remainder
of the application.
M.F. BUQUICCHIO J. LIDDY
Secretary President
to the First Chamber of the First Chamber
Full & Egal Universal Law Academy