Saturday, September 19, 2009

To Be an OECS Judge

To Be a Judge in the Organisation of Eastern Caribbean States Supreme Court
When you accepted this job, you were not being honoured for any merit on your part.  The truth is rather that, for your sins, you have been sentenced by the Chief Justice to a term of solitary confinement with hard labour.  Consider any little innocent relief that the country you serve in may afford you as time off for good behaviour.  Follow this rule, and you will not suffer any false expectations.
At the annual Armistice Day parade, when you stand in line behind the Governor and the Prime Minister, in front of the Bishop and the Leader of the Opposition, it is important to suppress that feeling that one must be a very important person.  It is not you that is important. It is the job that put you there.  And, it does not matter who is in front of you, or who is behind you.  You have no say on the question.  It is entirely in the control of the Protocol Department.  Let them do their job and worry about who has precedence, while you concentrate on doing yours.
When you go to the beach on a Sunday morning to have a swim, do not be surprised at the number of towels that soon get spread out around your position.  The sea-bathers will be very polite, perhaps excessively friendly to you.  You may not have any idea who they are, but from the time you hit the beach, every litigant for miles around will realise this is their chance to ingratiate themselves with you, and will make a bee line to your spot of beach.  Expect to see every one of them in the court before you on the Monday morning.  By all means be polite to citizens, but avoid friendliness and the development of social relationships.  You have not accepted this job to make friends, but to deliver blind and impartial justice to all who come before you, whether they swim or not.
When you are working at the case load you are given, be grateful that you are expected to be flawless and perfect.  Have no concern about making mistakes.  That is why there is the Court of Appeal.  They are the only ones who can decide that you made a mistake in law.  The Court of Appeal makes mistakes too.  That is why there is the Privy Council.
What you are expected to do is to impartially hear both parties to every case, and to deliver your decision one way or the other within a reasonable time, certainly not more than three months after the end of the case.  Lawyers and clients will appreciate prompt decision-making much more than they will appreciate your lengthy and laboured effort to produce perfect justice, especially if it delays your delivery by several months.
When your police orderly drives you in to work in the morning, it is not to make you feel important.  It is not for you to show off.  It is a simple device for ensuring that the judicial office is not brought into disrepute.  How can the citizen feel comfortable about you trying careless driving cases, when you are driving yourself and crashing into people and cars all over the country?  When he takes you effortlessly through security and immigration, it is not to emphasise your importance.  It is only that the powers that be consider that your judgments may be undermined in the eyes of the public if you are seen walking across the departure lounge in your socks, and buckling back up your trouser suit belt in public like everyone else.  It is just one of the aspects of the job.
On the point of the police, remember that your police orderly is not given the job for his good manners and polite behaviour.  In some of our islands, his principal responsibility is to fill out a report at the end of each day on anything useful that he may have overheard or noticed while driving you.  His promotion chances may depend on his providing titbits that his superiors may be able to use one day against you, if it ever becomes necessary.  Some police chiefs keep highly confidential files on judges, just as they do on politicians, merchants, and lawyers.  These Commissioner and their Superintendents never know when they might need the extra leverage.  So, be very careful how you conduct yourself in the presence of the police orderly.
When you enter the court room, and the lawyers bow down, with their foreheads nearly touching the polished bar table, keep in mind that it is not to you personally that they are bowing.  It is to the representation of the great seal of the State that hangs behind you on the wall of the court room that they are showing respect.  You appearance in the court room is no more than the trigger to set off a demonstration of loyalty to the high ideals of justice which your office represents.
When your orderly carries your bag out to the aeroplane and ushers you onto it before any of the other passengers are allowed to board, it is necessary to remind yourself that he is not pampering you.  What he is doing is to help you to carry work home.  The reason why the bag is so heavy is that it holds a lot of work you are supposed to be carrying home each and every evening.
While on the topic of aeroplanes, I hope I never hear that you have been demanding that you receive ‘your’ favourite seat.  As a judge, you have no right to any particular seat other than that awarded to you by the airline.  If you have no seat allocation, you board humbly like everyone else and gratefully accept any seat that is available.  Just hope the ‘plane takes off on time, and be thankful if your bag is on the same flight.
The VIP lounge at the airport, where you are sequestered before the flight is called, is not some place of privilege to which you are entitled access.  In my experience, the VIP lounge is used by your orderly to keep you safely confined until he can dispatch you out of his hands and onto the aeroplane.  If you go to an airport free of the custody of your orderly, use the departure lounge like everybody else, don’t demand access to the lounge like some Eastern despot.
One important matter I must touch on is the independence of the judiciary.  It really is quite remarkable that no Chief Justice, no Justice of Appeal, no judicial colleague will question you about your job, except on an appeal.  No one is looking over your shoulder, checking on what you are doing.  Always remember that this is not a privilege special to the judge.  It is not something you have earned, or have any right to.  As Chief Justice Sir Dennis Byron liked to remind his judges from time to time, it is a privilege that belongs to the citizen alone, certainly not to the judge.  It is fundamental to our system of justice that the citizen is entitled to be confident that his or her judge is delivering judgment without fear or favour, with prejudice to none.  The judge’s independence is his right and entitlement, not yours.
Finally, each of our islands has its charms, and its challenges. Some islands are coral and others are volcanic.  Some are mountainous and others are flat.  The people are universally friendly and polite.  Show courtesy and politeness back, and you will have no difficulty enjoying your period of service.  And, when after a few years it is all done, we look forward to your returning to us and re-joining the community of friends and colleagues whom you are leaving behind.
We bid you adieu and bonne chance.
A speech after a Bar Association dinner at my home in North Hill celebrating the appointment of my one-time partner, Birnie Stephenson, to be a Justice of the Eastern Caribbean Supreme Court, to serve in Dominica.

Tuesday, July 21, 2009

Constitutional Reform Brief




To:      A Politician
From: Don Mitchell
Date:  21 July 2009

The question you have asked me is, what in my view are some of the basic Constitutional improvements everyone in Anguilla wants to see?  What are the bare minimum reforms that are needed?  What are the checks and balances that we now know will help Anguilla to be better governed in the future?

I think it is generally agreed that we need to see two major changes:

1. Internal self-government.  No one is saying that Anguilla is ready for independence.  No one in Anguilla is asking for political independence at this time.  But, the old colonial regime has been discredited.  The United Nations has been saying for years that colonialism must come to an end.  The British government has been saying for years that it does not want any colonies.  It wants only self-governing overseas territories.  Anguilla has been paying her way in the world without financial assistance from the British government for years.  The British government has said that it wants a partnership relationship with us[1].  We are ready for partnership.  What does this mean?

(a) Public Service:  Appointments, promotions and disciplining of civil servants should no longer be in the personal control of the Governor.  Appointments, promotions and discipline should be on merit, and should be in the control of an independent, local group of respected members of the community appointed to the Civil Service Commission by the Governor.

(b) Teachers:  Appointments, promotions and disciplining of teachers should no longer be under the personal, uncontrolled discretion of the Governor.  Teachers should be handled by an independent Teachers' Commission.  Teachers should no longer be lumped together with civil servants.

(c) Police:  Appointments, promotions and terms of service of police officers should no longer be under the personal control of the Governor.  These should be handled by an independent Police Service Commission.

(d) Chairing Executive Committee:  It is time that the Executive Council be chaired by the Chief Minister or Premier.  The Premier must discuss business with the Governor and listen to his advice, but no one has elected the Governor to make decisions about the affairs of Anguilla.

(e) The Governor:  The Chief Minister and the Leader of the Opposition should be consulted on the appointment of a new Governor.  They should see the curriculum vitae of the proposed appointee.  We have a right to be consulted on the type of person they are sending to be Governor of Anguilla.

(f) Cabinet:  Increase the size of Executive Council [Cabinet]:  The number of Ministers should be increased to take account of the increased burden of government in the 21st Century.  Four persons to run the affairs of this country is unrealistic.  With increased self-government, there will be an even greater burden on Ministers.  We need a Cabinet of at least six persons.  This way, we can get rid of the office of Parliamentary Secretary.  If we keep the Parliamentary Secretary, we must make sure the total can never again exceed fifty percent of the size of the House.

(g) Ex-Officio Members of Cabinet:  Let the ex-officio members, the Attorney-General and the Deputy Governor, remain in Cabinet to advise.  However, they should have no vote.  The elected members take the benefit and the blame of their decisions.  Nobody elected the ex-officio members.

(h) Governor's reserved powers:  The Governor must consult with the Chief Minister on the exercise of his reserved powers.  It is embarrassing for a responsible local government to have to learn about the actions of the Governor for the first time by hearing it on the radio.

(i) DPP:  The decision to prosecute somebody for a serious crime should not be in the hands of a member of Cabinet, such as the Attorney-General.  The Constitution must provide for an independent Director of Public Prosecutions who does not take orders or advice from any politician.

(g) Power to return a Bill to the House:  The Governor cannot continue to refuse to a Bill if he returns it to the House once, and the House considers his recommendations and sends it back to him.  The people's representatives take the credit and the blame for what laws are passed.  No one elected the Governor to decide what laws can pass for Anguilla.

(h) Power of disallowance.  At the moment, the Secretary of State can reject any Bill passed into law by the Anguilla House of Assembly, and assented to by the Governor.  He must never again have the power of disallowance of a Bill passed by the Anguilla House of Assembly, except in strictly limited situations, eg, where the Act will bring Britain in breach of some international obligation or Treaty.

(i) Mercy Committee: At present the Governor has sole discretion in exercising the prerogative of mercy.  He decides in private and on his own.  No one knows what criteria he applies.  He should act on the advice of an independent group of citizens who follow recognised rules of procedure.

(j) Anguillian status:  Anguillians have for generations traveled the world seeking to improve themselves.  There are thousands of Anguillians around the world who do not have British citizenship.  These persons are deprived of their belongership, though they are recognised by all Anguillians as being Anguillian.  By contrast, Anguillian status, or belongership, is granted when an alien becomes naturalised in Anguilla.  Naturalisation is controlled by the British Nationality Act, and is not recognised as an Anguillian procedure.  This allows certain persons to avoid the constitutional provisions for acquiring belongership by residence, marriage, etc.  In future such persons should not be given Anguillian or belonger status.  British nationality should be removed from belonger status. 

2. Checks and balances.  Internal self-government requires that the public be confident that the opportunities for abuse by local leaders will be minimised.  It is no use taking the power away from a British civil servant and giving it to a local politician if the politician can use it to promote his family and friends.  What are some of the checks and balances that we can put in place?  Here is a shopping list, with no sense of priority.

(a) The House of Assembly must stop being a rubber-stamp for the Executive Council.  The main reason why this happens is that most members of the House are Ministers of government, or Parliamentary Secretaries, or Nominated Members, or Ex-Officio members of Executive Council.  The solution is to completely alter the structure of the House so that:

(i) Nominated Members must be done away with.  They are not elected and their presence is undemocratic;

(ii) Ex-officio members should not have a vote.  Nobody elected them to vote in the House.  They can stay in the House to advise the Speaker and the Members, but without the power to vote;

(iii) Increase the number of elected members so that the Ministers will never again fill most of the seats.  Let the House be big enough that a substantial part of it will always be independent of the Ministers.  One way to achieve this is to provide that Ministers can never be more than half of the House, eg, with 13 members, a maximum of 6 Ministers.

(iv) A vote of no confidence should pass on a simple majority.  The present position is that it takes a vote of three-quarters of the House.  That means that a minority government can continue to try to rule the country without ever being able to pass a law or a motion in the House.  That happened with Hubert's last government.  It should never be allowed to happen again.

(b) The Police should be under the control of an independent Police Complaints Authority.  It is wrong that if you have a complaint against a police officer you can only go to the Commissioner to complain about it.

(c) Ministerial Code of Ethics:  We can no longer leave it up to the private code of ethics of Ministers.  Ministers should be educated in how to deal with conflicts of interest, and they should promise to conform to a Ministerial Code of Ethics as is done in other countries.

(d) Voting at large:  The constituency system has its weaknesses.  The persons who get elected tend to be the ones with most family connections in the Constituency, or the ones who are rich enough to pay for votes.  If the whole country had to vote for some of the representatives, we can be sure that they would not be related to most of the people across the country, and they would never afford to pay off voters throughout the country.  It would bring to the House persons who were genuinely popular throughout the country.  In Montserrat, all the Members are elected this way, in BVI it is some of them.

(e) Campaign funding:  We need a law in place to provide for the regulation of political fund-raising.  We need to make politicians provide an audit of their political funds on a regular basis.  There should be stiff penalties for infringement. 

(f) Public Accounts Committee:  We need to strengthen the provision for this committee to keep an eye on public expenditure.  The committee is not provided for in the Constitution, and it has never sat.  We need to make sure this never happens again.

(g) Interests Commissioner:  There must be an entrenched provision for Members of the House to declare their assets and interests and for their declarations to be published, with severe penalties for infringement.  This is one of the most important anti-corruption measures that is missing from our Constitution.

(h) Crown land:  At the present time, the Governor deals in public land based on the advice of Executive Council.  There is no transparency.  Land is exchanged and leased without the public knowing anything about it.  In future, no land in excess of half an acre should be dealt in without a resolution or the House of Assembly.

(i) National Security Council:  There should be provision for such a Council to deal with national security issues.  It should be made responsible for all matters of policy and oversight relating to internal security, including the police force.

(j) Ombudsman/Human Rights Commissioner:  There should be provision for such an officer of Parliament to report to the House and to be independent of any government department.

(k) Boundaries Commission:  The Constitution should provide for an independent Commission to review the boundaries of parliamentary districts from time to time, say, after each census, and to ensure the districts are more or less equal in population size.





[1]    In the Partnership for Progress White Paper.

Monday, April 27, 2009

AL-HCS



My Experience of the Albena Lake-Hodge Comprehensive School.
A paper prepared for the Comprehensive Education Review Team by Don Mitchell CBE QC, dated 27 April 2009.
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I am grateful to have been invited to address the team on the subject of my views on how the present comprehensive education system is working. As you know, I am a retired lawyer and High Court Judge. I occupy some of my retirement time by teaching part-time at the High School. My subject is A-Level law for the CAPE programme. I teach one class for two hours a day, three days a week. My students are in Form VI A and B. I have been teaching only since September 2007. My exposure to the High School system is limited. However, I have my views, relatively uninformed as they are. I am grateful for the opportunity to share them with you.
I have about 15 students in all. They are aged 17-18 years old. They are in the final years of High School. Being Form VI students, they may be described as the cream of the cream of Anguilla’s education system. They are not intending to become technical persons. They aspire to academic and professional careers. They would not be doing law if it were otherwise. Besides, they have all assured me that they want to be lawyers, business professionals, doctors, and accountants. You would expect that, with these ambitions, their work product would be of a high standard.
My students have recently submitted their research papers for the 2009 School Based Assessment, part of their final exams. I have been reading them and grading them. The following are samples taken at random from five different essays written for this year’s CAPE Law SBAs. I have made no attempt to rank them or to select particularly poor paragraphs. I have not selected particularly bad essays. I picked the first five that came to hand, and opened the pages at random:
“Drinking under the influence of alcohol, poses a serious threat to not only the driver who is impaired but also the driver on the receiving end of the crash. As a result of a negligent act of driving whether alcohol consumption or otherwise, damages are awarded are great. “
. . . . .
“In order for one to succeed in defamation they have to make sure that their words were Defamatory, that the words refer to one and that they were published to at least one person other than to the claimant.”
. . . . .
“Therefore, with the technological advancement of cell phones became an integral role in our society and people have come to be extremely reliant on cell phones especially while driving. However, the convenience they offer must be judge against the hazard they pose.”
. . . . .
“The likelihood of harm would therefore be that if Mr B does not obey the 2 second rule, it would be more than likely that upon a sudden stop by Mrs A, due to no fault of hers, Mr B would crash into the rear of her car; The seriousness of the Injury would depend on whether Mrs A was wearing a seatbelt at the time of the incident or not; The defendant’s conduct, Mr B’s, would have no great social value unless the accident was of a different nature; finally, it would possibly have been more costly and less practicable for the defendant to avoid the accident at such a last minute by maybe swerving unto the side walk or further out into the road.”
. . . . .
“In evaluating such an offence to with the burning of domestic waste in Anguilla, there are offence which can deal with such an offence that has been embedded in its Criminal Code and the Nuisance Regulation.”
Most of these essays are painfully difficult to read. It is hard sometimes to understand what the student is writing about. Vocabulary, punctuation, syntax and grammar, the basic ingredients two of the “three Rs”, in these essays are poor. I continue to be dissatisfied at the inadequate level of English language usage. My concern is that these students will leave Anguilla’s high school system essentially uneducated. They cannot justifiably expect any degree of advancement in any of the careers they have been telling me they aspire to follow. In my view, they are the product of an unsatisfactory education system.
In my estimation, only 3 of my 15 students can either write or express themselves verbally above a Form II standard. The 3 exceptions are the children of professionals. I assume their parents put pressure on them to achieve and to excel in school. Those children who do not come from equally ambitious backgrounds are not being helped by the present school system. I had not realised that the Comprehensive Education System as it works in Anguilla is designed to ensure that only the children who are the beneficiaries of additional home schooling would reach an acceptable standard of basic education after they have graduated from the High School.
I am conscious that the secondary school system is not the only culprit in this failure shown towards the students of Anguilla. I understand that the children’s education problems start long before they reach the High School. Parents, who were too busy to read to them when they were very young, are partly to blame. The primary schools are graduating students who cannot read or write. There is frequently no adult present when the students come home after class to encourage them to study and prepare. Drugs, alcohol and pornography on the internet are pervasive. These adversely impact young persons in Anguilla when they are left to their own devices.
The paucity of the facilities at the High School is noticeable. The school library serves as the Form VI students’ lounge. The books are in the mess you would expect. I have not asked, but it is unlikely that any student, other than a sixth former, would dare to enter the room. The public library is no substitute. It is a place to go to gossip and to play computer games. The different reading rooms in the library are not invigilated when there are students in them, as they ought to be. The public library of Anguilla is distinguished mainly by the absence of worthwhile literature and reference works. There has been no attempt to build up a permanent collection of regional and international classics. There has for years been a culture among the public library staff that if a book is old then it must be deemed soiled and fit only to be disposed of. Several of my students have told me that they have not borrowed a book from the public library to read for either pleasure or instruction in over ten years. Their explanation is that there are no books worth reading in the library. There is no invigilated study room in the school, as there ought to be, for students who have no class to sit quietly and study. The result is that there are groups of boys and girls hiding in corners of the schoolyard laughing and chatting at all hours of the day. There is no supervision of the students in the school yard during breaks or at lunch time. This encourages them to engage in bad behaviour. It reinforces their perception that there are no consequences for bad behaviour. Foul language is commonly overheard, among boys and girls. There is no one to report their misconduct, and no penalty of any consequence if anyone did. Many of the teachers I meet are disillusioned and disgruntled. The teacher’s common room is a dump. I have never seen more than five or six teachers in it at lunch time or at any other time, except when the Principal holds meetings. The explanation for its present dilapidated state is that it is old, about to be replaced, and not worth repainting.
There is no necessity for the education authorities to compound all the wider social faults and defects by providing an education system that seems designed to ensure that the present generation of Anguillian students will not be able to hold their own when they grow up and go out into the real world.
The comprehensive education system as I have found it has been a disappointment. Anguilla’s children are being cheated out of a decent secondary education. Radical reform is needed. I am not qualified to make recommendations on how to reform the system. I will leave that for others who are more qualified than I am.

Monday, March 09, 2009

Responsibility


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RESPONSIBILITY – COMMONWEALTH DAY 2009
Speech to the Albena Lake-Hodge Comprehensive School, Campus B Assembly,
9 March 2009 – By Don Mitchell CBE QC
Ladies and gentlemen, boys and girls,
First, let me say what an honour it is to be invited to address the future young leaders of Anguilla on Commonwealth Day, 2009.
As a British Overseas Territory, Anguilla is a member of the Commonwealth of Nations. The Commonwealth is a voluntary grouping of nations with a common history of a relationship with the British people that goes back, for some of our countries, nearly 400 years.
England’s Parliament, however, is not the oldest one in the Commonwealth. England’s Parliament was interrupted when Oliver Cromwell abolished it in the year 1653. It was not to be restored for another seven years, in the year 1660. By comparison, Bermuda’s Legislative Assembly began its sitting in the year 1620. It has never been interrupted. That makes Bermuda the country in the Commonwealth with the longest continuously-sitting parliament, longer even that the Parliament of England. That is quite a Commonwealth landmark for a little West Indian country, a British Overseas Territory like us in Anguilla.
Today, my charge is to talk to you on the topic of “responsibility”.
For me, “responsibility” is more than just a philosophical concept. It is a vital attribute. We judge people and groups of people by how seriously they take their responsibilities.
Each one of us bears an individual responsibility for the consequences of our actions. As we grow older, we learn to value the virtue of responsibility in the people we relate to. We praise some people as being responsible, and criticise others as being irresponsible. We may even praise an institution as being responsible. We often call for “responsible government”.
As human beings we are responsible for our deeds. When we ask ourselves what we are responsible for, we are making an enquiry about our duties. So, a parent is responsible for caring for his child. An employee is responsible for doing her job. As citizens, we are responsible for obeying the laws of Anguilla.
Our responsibilities are divided and complex. If the doctor is responsible for prescribing the right drugs, we are responsible for taking them properly.
As thinking persons, we act most responsibly when we act on the basis of principle. When we fail to act rationally, we often act badly. We reason within a moral context. When we act immorally, we act irrationally. Even if sometimes we care nothing for the feelings of others, reason still tells us that we should. Reason can motivate us to take care of the feelings of others.
We have the power to feel and to desire. We feel sympathy for others who have been badly hurt. We feel shame and guilt when we make a mistake. It is this moral content of our power of reasoning that makes us support moral actions on the part of our leaders, and causes us to condemn unethical behaviour on their part.
As for ourselves, it is our power to respond to others that gives us a sense of responsibility for our actions. It is a sense of personal responsibility that allows us to work out why we feel the emotions of shame or guilt. We feel that the person who acts well towards others deserves to be happy. The person who acts badly, does not. She ought to feel remorse, and may even deserve to be punished. We feel that, if a person chooses to act selfishly, he deserves to be blamed. I choose to break the law, I deserve to be punished. When we see someone choosing immorality and irrationality, we feel he does not deserve to be happy.
Regardless of how we were brought up, we enjoy free will. We really are the authors of our own choices.
Responsibility involves the idea of duty. When we ask about a person’s responsibilities, we are asking what she ought to be doing, what her duties are. He is responsible for taking out the garbage. She is responsible for looking after her baby. The Planning Department is responsible for preventing private encroachments on the public beach.
We all tend to hold someone responsible when they fail to carry out their duties. The captain is responsible for the safety of his ship. He will be held responsible if there is a shipwreck. We feel that if he had taken his responsibilities more seriously, he might have avoided the shipwreck. We know that when we are given responsibility for something, we can expect to be held responsible if harm occurs.
Our actions impose risks on others. It is our duty to make amends when our actions cause harm to others. The person who caused the accident will have to bear the legal consequences of it.
So, how to end? Let’s try these.
When getting to school, don’t run carelessly across the street: Check for traffic. Show some self-control.
Remember, no i-pods or cellphones in class.
When your teacher gives you an assignment, take it seriously. Do it on time. Show how reliable you are.
When a $20 banknote drops from someone’s pocket, and temptation strikes, point it out to the person. Show your honesty.
Do your bit to make your school spick and span. When you see rubbish around, pick it up and bin it. Show a sense of pride in your surroundings.
All these things prove to your friends and teachers that you are dependable and trustworthy.
If you act responsibly like this, I promise to vote for you when you grow up and run in the elections for our House of Assembly.
Thank you.