COMMISSIONER OF POLICE OF THE'METROPOLIS, Ex...

|1968]2 W.L.R.

893

[COURT OF APPEAL]

R E G I N A

C O M M I S S I O N E R O F P O L I C E O F T H E ' M E T R O P O L I S , Ex parte B L A C K B U R N

1 9 6 8 Jan . 2 4 , 2 5 , 2 6 , 2 9 L O R D D E N N I N G M . R . , S A L M O N and

E D M U N D D A V I E S L .JJ .

Court o f Appeal - Jurisdiction - Criminal cause or matter - Mandamus - Order directing Commissioner o f Police o f Metropolis to reverse decision not to enforce law - Whether "criminal cause or mailer" - Supreme Court o f Judicature (Consolidation) Act, 1925 (15 &16 Geo. 5, c. 49) s. SI (1) (a).

Crown Practice - Mandamus - Commissioner o f Police o f Metropolis - Whether order available to compel performance o f duty - Enforcement o f betting and gaming statute - Whether private citizen sufficient interest.

Metropolis Police - Commissioner - Status - Duty o f law enforcement - Whether owed to public -

Responsibility - Whether answerable to law alone - Whether mandamus available to compel performance o f duty - Discretion not to prosecute * Power to make policy decisions - Whether absolute.

Police - Duties - Law enforcement - Commissioner o f Police o f Metropolis - Whether duty o f law enforcement owed to public - Whether performance o f duty compellable - Enforcement o f duty> - Whether mandamus available - Discretion not to prosecute - Power to make policy decisions - Whether discretion absolute - Policy decision not to enforce Gaming Acts - Whether mandamus available to secure reversal o f decision - Betting, Gaming and Lotteries Act. 1963 (c. 2), s. 32 (1) (a).'

Gaming - Gome o f chance - Odds favouring banker • Duty o f police to prosecute.

* Betting. G am ing and Lotteries A ct. 1963. s. 32 (1 ): "... gam ing shall be law fu l if, but only i f ... ( a ) ...( i ) the chances in the gam e are equally favourable to all the players; or ( i i ) the gam ing is so conductediha i the chances therein are equally favourable to all the players ..."

An exirac; from a JUSTIS database

»

11968] 894

2 W .L .R . Reg. v. C o m m is s io n e r o f Po lice o f the M e tro p o lis , E x

p a r te B la c k b u rn (C .A . )

A s a consequence o f a policy decision m ade in A p r i l , 1966, by the respondent, the C om m issioner o f Police o f the M etropolis , the police did not attempt to enforce section 32 (1 ) (a) o f the Betting, G a m in g and Lotteries A c t, 1963, in g am ing clubs in London. T h e applicant, a private citizen, com plained that illegal gam ing was being carried on, and applied to the D iv is ional Court for, inter alia , an order o f mandamus directing the respondent to reverse the po licy decision. Th e application

w-as refused and the applicant appealed to the Court o f A ppeal. In D ecem ber, 1967, the respondent ora lly announced a new policy o f enforcing, and steps w ere taken to enforce, section 32 (1 ) (a ) o f the

A ct, and he undertook on appeal that the p o licy decision o f A p ril , 1966, w ou ld be o ff ic ia lly revoked.O n the contentions that the respondent ow ed no duty to the public to enforce the law and had an

absolute discretion not to prosecute, and that the appeal was in a c rim inal cause o r m atter w ith in

section 31 (1 ) ( a ) o f the Supreme Court o f Judicature (C onsolidation) A ct, 1 9 2 5 ,1 so that the court was w ith o u t jurisdiction in the appeal:-

^ at •t*le resPondent owed a duty to the public to enforce the law (post, pp. 9 0 2 E , 9 0 4 H- 9 0 5 A , 9 1 j F ) w hich he could be com pelled to perform (post, pp. 9 0 3 C , 9 0 5 A , 9 1 2 B ); that (pe rL o rd D e n n in g M .R . and Salmon L J . ) w h ile he had a discretion not to prosecute his discretion to m ake

p o lic y decisions was not absolute (post, pp. 9 0 2 H , 9 0 5 C ); but that, since the respondent had undertaken to revoke the policy decision o f A p r i l , 1966, and had taken steps to enforce section 32 (1 ) (a) o f the A ct, and m ore could not be reasonably be expected, no order should be m ade on the appeal (post. pp. 9 0 4 D , 9 1 0E . 9 12B ).

v' Oldhoin Corporation [19 3 0 ] 2 K .B . 364: 4 6 T .L .R . 390; and Attomev-General fo r NeM South Hates v. Perpetual Trustee Co. Ltd. [1 9 5 5 ] A .C . 4 5 7 ; [19 5 5 ] 2 W .L .R . 7 0 7 ; '[1 9 5 5 ] 1 A l l E .R . 846 , P .C. considered.

Mills v. Mackitmon [1964 ] 2 Q .B . 96; [19 6 4 ] 2 W .L .R . 363; [19 6 4 ] 1 A l l E .R . 155, D .C ., doubted.

reversal the po licy decision was not "a crim inal cause or matter" w ith in section 31 (1 ) (a ) o f the Supreme Court o f Judicature (C onsolidation) A ct, 1925, (post, pp. 9 0 1 C , 9 1 0 C , 9 1 2 F ) and accordingly , the Court o f A ppeal had jurisd ic tion to hear the appeal.

^ Parte Alice M oodhall (1 8 8 8 ) 20 Q .B .D . 832, C .A .; and Amand v. Home Secretary [19 4 3 ] A .C 147, considered. 1

2 Q ,p~ 9 j /' G ) ier a^ ' cant a su^ c 'ent interest to be protected by mandam us (post, pp.

A P P E A L fro m D iv is io n a l C o u r t ( L o r d P a r k e r C .J . , W in n L .J . and W id g e r v J .).

u an in s tru c tio n w a s issued f ro m th e o f f ic e o f th e C o m m is s io n e r o f P o l ic e o fth e M e t r o p o l is , th e re s p o n d e n t, b y the assis tant c o m m is s io n e r o f " A " d e p a r tm e n t, to s e n io ro f f ic e r s o f the M e t r o p o l i t a n P o lic e in th e fo l lo w in g te rm s:

" C o n f id e n t ia l In s tru c t io n . G a m in g in re g is te red o r lice n s e d c lub s . F o r th e t im e b e in g a ll a p p l ic a t io n s f o r a u th o r ity fo r an in s id e o b s e rv a t io n in lice n s e d o r re g is te red c lub s

1 Suprem e Court o f Judicaiure (C onsolidation) A ct. 1925, s. 3 ] (1 ): "N o appeal shall lie (a) .... fromany jud g m ent o f the H igh Court in any crim inal cause or m atter ..."

£■ A n extract from a JU S T IS database

33

IT.' » . . 89*^ e8- v - C o m m is s io n e r of Po lice o f the M e tro p o lis , E x

p a r te B la c k b u rn (C .A . )

f o r th e p u rp o se o f d e te c t in g g a m in g a re to be s u b m it te d to A . I . b ra n c h f o r m y c o v e r in g a p p ro v a l . ..."

B y a f f id a v i t s w o rn in J u n e , 1 9 6 7 , R o b e r t A l f r e d B e a rm a n , ass is tan t s e c re ta ry , A . I . b ranch ,

a d m in is t r a t io n d e p a r tm e n t, N e w S c o tla n d Y a r d , s tated as fo l lo w s :

" I t is a fa c t th a t in A p r i l , 1 9 6 6 , th e th e n ass istant c o m m is s io n e r 'A ' d e p a r tm e n t o rd e re d as

a m a t te r o f p o l ic y th a t n o o b s e rv a t io n s b y p o lic e w e re to be k e p t in l ic e n s e d o r re g is te red

•t ie PurP.0Se d e te c t in g o ffe n c e s u n d e r th e B e t t in g , G a m in g a n d L o t te r ie s A c t [ 1 96j>] w i th o u t h is c o v e r in g a p p ro v a l . ... I w a s in fo rm e d v e r b a l ly b y th e ass is tant

c o m m is s io n e r re fe r re d to , w h o is now ' th e d e p u ty c o m m is s io n e r , th a t he c o n s id e re d th a t in

v i e w o f th e u n c e r ta in ty o f th e la w , th e ex p e n se and m a n p o w e r in v o lv e d in k e e p in g g a m in g

o b s e rv a t io n s in su ch c lu b s w e r e n o t ju s t i f ie d un less th e re w e r e c o m p la in ts o f c h e a t in g o r

re a s o n to sup po se th a t a p a r t ic u la r c lu b h a d b e c o m e th e h a u n t o f c r im in a ls . A t th e t im e w h e n

th is d e c is io n w a s ta k e n th e K u rs a a l case [Kursaal Casino Ltd. v. Crickin'] ... w a s b e l ie v e d to

be g o in g to th e H o u s e o f L o r d s on th e p o in t c e r t i f ie d b y th e D iv is io n a l C o u r t . H a d th is been

d e c id e d in f a v o u r o f th e p ro s e c u tio n , i t w a s fe l t th a t ro u le t te a n d o th e r g a m e s w h e r e th e b a n k

h ad an a d v a n ta g e w o u ld h av e b een c le a r ly i l le g a l and w o u ld , th e re fo r e , h a v e c o m e to an end

in a n y re p u ta b le c lu b s o r h a v e b een v e r y e asy to d etec t and p ro s e c u te . .. ."

A s a c o n s e q u e n c e , p o l ic e o b s e rv a t io n w a s s to p ped , a n d th e p o l ic e d id n o t a t te m p t to e n fo rc e

s e c tio n ( 1 ) ( a ) o f the A c t o f 1 9 6 3 in la rg e g a m in g c lub s in L o n d o n .

In 1 9 6 6 th e a p p l ic a n t , A lb e r t R a y m o n d B la c k b u r n , a p r iv a te c i t iz e n , a l le g e d to th e re s p o n d e n t

th a t i l le g a l g a m in g w a s ta k in g p la c e in c as in o s in L o n d o n . B y le tte r d a ted M a r c h 15 , 1 9 6 7 , he

re p e a te d th e a l le g a t io n th a t in v i r t u a l ly e v e r y L o n d o n c a s in o g a m e s w e re p la y e d w h ic h m a n ife s t ly

c o n tra v e n e d th e p ro v is io n s o f sec tio n 3 2 o f th e A c t o f 1963 in th a t th e b a n k h ad a p e r m a n e n t

a d v a n ta g e and ro u le t te w i th a z e ro w a s b e in g p la y e d , he n a m e d t w o c lu b s , and a s k e d fo r

ass is tance b y th e re s p o n d e n t in e n fo rc in g th e p ro v is io n s o f th e A c t o f 1 9 6 3 .

. . f ? 11 M a r c h 2 1 , 1 9 6 7 , th e a p p l ic a n t w a s in fo rm e d b y R o b e r t A l f r e d B e a r m a n th a t th e re w-ere

d if f ic u l t ie s in e n fo rc in g th e p ro v is io n s o f th e A c t o f 1 9 6 3 , th a t th e w a y in w h ic h p o lic e

m a n p o w e r w a s used w-as a m a t te r f o r th e resp on den t's d is c re t io n , th a t it w a s f e l t th a t , as th e

g a m i n g law stood , th e re w e r e h ig h e r p r io r i t ie s f o r the d e p lo y m e n t o f m a n p o w e r , an d re fe re n c e w a s m a d e to th e p o l ic y d ec is io n o f A p r i l 2 2 , 1 9 6 6 .

O n J u ly 11, 1 9 6 7 , the a p p l ic a n t in p erson m o v e d th e D iv is io n a l C o u r t f o r an o rd e r o f m a n d a m u s d ire c te d to th e re s p o n d e n t in th e f o l lo w in g te rm s:

re q u ir in g h im to assist th e a p p l ic a n t a n d such o th e r persons as m a y h a v e g o o d g ro u n d s fo r

re q u e s t in g h is ass is tance in th e p ro s e c u tio n o f g a m in g c lub s in th e m e tr o p o l i ta n p o l ic e a rea w h ic h c o n tra v e n e the p ro v is io n s o f th e [B e t t in g ]

1 [ 1 9 6 6 ] I W .L .R . 96 0 ; [ 1 9 6 6 ] 2 A l l E .R . 639.. D.C.

£ A n extract from a JU S TIS da tabase

[1968]2 W.L.R. Reg. v. Commissioner of Police o f the Metropolis, Ex

parte Blackburn (C.A.)

896

G a m in g [an d L o t te r ie s ] A c t , 1 9 6 3 ; and in p a r t ic u la r to assist th e a p p l ic a n t in respect o f th e

c o m p la in t lo d g ed b y h im w i th th e [ re s p o n d e n t] on M a r c h 2 1 , 1 9 6 7 , c o n c e rn in g th e G o ld e n

N u g g e t C lu b , P ic c a d i l ly ; and r e q u ir in g h im to re v e rs e o r p ro c u re th e re v e rs e o f th e p o l ic y

d e c is io n [d a ted A p r i l 2 2 , 1 9 6 6 ] ta k e n b y h im o r h is su p e rio rs th a t th e t im e o f p o lic e o ff ic e rs

w i l l n o t be spen t on e n fo rc in g th e p ro v is io n s o f th e A c t o f 1 9 6 3 ."

T h e a p p l ic a t io n w a s s u p p o rted b y a w r i t te n s ta te m e n t o f th e a p p lic a n t 's sub m iss ion s . T h e

D iv is io n a l C o u r t re fu s e d th e a p p lic a n t 's m o t io n w i th costs.

T h e a p p l ic a n t a p p e a le d on th e g ro u n d s , in te r a l ia , th a t th e d e c is io n w a s c o n tra ry to la w and

s h o u ld b e re v e rs e d . T h e re s p o n d e n t g a v e n o t ic e th a t , in a d d it io n to g ro u n d s re l ie d on b y th e

D iv is io n a l C o u r t , th e d ec is io n s h o u ld be a f f i r m e d on fu r th e r g ro u n d s as fo l lo w s :

" T h a t as a m a t te r o f la w an o rd e r o f m a n d a m u s w i l l n o t issue a g a in s t a c h ie f o f f ic e r o f

p o lic e in re s p e c t o f a n y o f th e m a tte rs set o u t in th e a p p lic a n t 's n o t ic e o f m o t io n a n d

s ta te m e n t b ecau se (a ) th e re s p o n d e n t has n o le g a l d u ty to th e a p p l ic a n t in re g a rd to a n y o f

th o s e m a tte rs , a n d (b ) each o ne o f th e m a tte rs is a m a t te r ly in g o n ly w i th in th e d is c re t io n o f

th e re s p o n d e n t, th a t th e o rd e r o f m a n d a m u s w h ic h th e a p p l ic a n t seeks w o u ld a m o u n t e i th e r

d ir e c t ly o r in d ir e c t ly to an o rd e r to p ro s e c u te c e r ta in p ersons b oth s p e c if ie d and a s c e r ta in a b le ,

a n d as a m a t te r o f la w an o rd e r o f m a n d a m u s w i l l n o t issue f o r such la t te r p u rp o se ; th a t an

o rd e r o f m a n d a m u s o u g h t n o t to issue as th e re a re a l te r n a t iv e re m e d ie s a v a ila b le to th e

a p p l ic a n t in th a t h e m ig h t h im s e l f ( a ) la y in fo r m a t io n , o r ( b ) a p p ly f o r v o lu n ta r y b il ls o f

in d ic tm e n t ."

T h e re s p o n d e n t a lso g a v e n o t ic e o f in te n t io n to r e ly u p o n th e a d d it io n a l g ro u n d th a t th e c o u rt

h ad n o ju r is d ic t io n to h ea r the a p p e a l s in c e it w a s in a c r im in a l cause o r m a t te r w i th in sectio n 31

( 1 ) (a) o f th e S u p r e m e C o u r t o f J u d ic a tu re (C o n s o l id a t io n ) A c t , 1 9 2 5 .

O n D e c e m b e r 19 , 1 9 6 7 , ju d g m e n t in th e a p p e a l to th e H o u s e o f L o r d s in Kursaal Casino Ltd. v. Crickitt (No. 2),2 w a s g iv e n and co n s e q u e n t on th a t d ec is io n p o l ic e o ff ic e rs m a d e v is its to

L o n d o n g a m in g c lu b s .

O n D e c e m b e r 3 0 , 1 9 6 7 , th e re s p o n d e n t issued a s ta te m e n t in th e f o l lo w in g te rm s: " I t is th e

in te n t io n o f the M e t r o p o l i t a n P o l ic e to e n fo rc e th e la w as it has b ee n in te rp re te d ."

A t th e h e a r in g o f th e a p p e a l th e a p p l ic a n t a b a n d o n e d h is a p p l ic a t io n f o r o rd ers d ire c tin g th e

re s p o n d e n t to assist h im and o th ers in th e p ro se c u tio n o f g a m in g c lub s , and in p a r t ic u la r to assist

h im in resp ect o f th e n am e d c lu b . H e a d d u c e d e v id e n c e a b o u t p ra c tic e s in th e G o ld e n N u g g e t

C a s in o C lu b and th e V ic t o r ia S p o r t in g C lu b .

T h e re s p o n d e n t p ro d u c e d schedu les o f p ro se c u tio n s u n d er sec tio n 3 2 o f th e A c t o f 1 9 6 3 , fo r

1 9 6 4 , 1 9 6 5 and 1 9 6 6 , and by

2 [ 1 9 6 8 ] 1 W .L .R . 53 ; [ 1968] 1 Al l E.R. 139, H .L . (E .) .

raci from a JUSTIS da iabase

11 9 6 8 1

2 W .L .R . Reg. v. Commissioner of Police o f the Metropolis, Exparte Blackburn (C.A.)

897

c o u n s e l u n d e r to o k th a t th e p o l ic y d ec is io n o f A p r i l 2 2 , 1 9 6 6 , w o u ld be re v o k e d . T h e c o u rt w a s

in fo r m e d th a t re p o r ts b y p o l ic e o ff ic e rs on g a m in g in b ig c lu b s in L o n d o n w e r e to be re fe r re d to

th e D i r e c t o r o f P u b l ic P ro s e c u tio n s .

F u r th e r fac ts a re s ta ted in th e ju d g m e n ts .

T h e a p p l ic a n t in p erson .

Michael Worsley f o r th e re s p o n d e n t.

The following cases in addition to the cases referred to in the judgments were cited in argument: Ex parte Napier3; Reg. v. Lewisham Union Guardians4; Grant v. Secretary o f State for India in Council5; Reg. v. Secretary of Stale fo r War6; Reg. v. Caledonian Railway Co. 7; Reg. v. Southampton Port Commissioners, Ex parte Southampton Corporation8; Elwood v. Belfast Corporation9; Ex parte Pulbrook,0; Reg. v. Commissioners o f Inland Revenue, Ex parte Nathan Julius v. Bishop of Oxford12; Liversidge v. Andersonu ; England v. Davidson™', and Tzortzis v. Monark Line A/B.ls

L O R D D E N N I N G , M . R . M r . B la c k b u r n , th e a p p l ic a n t , m o v e s f o r a m a n d a m u s a g a in s t th e

C o m m is s io n e r o f P o l ic e o f th e M e t r o p o l is , th e re s p o n d e n t. H e says th a t i t w a s th e

c o m m is s io n e r 's d u ty to e n fo rc e th e la w a g a in s t g a m in g houses: an d h e has n o t d o n e it . H e seeks

an o rd e r to c o m p e l th e c o m m is s io n e r to d o it . T h is m o t io n , th u s m a d e , ra ises q u e s tio n s o f

c o n s ti tu t io n a l s ig n if ic a n c e . I w i l l d ea l w i th th e m s e p a ra te ly .

1. T h e L a w as to G a m in g -h o u s e s

T h e c o m m o n " l a w o t E n g la n d has a lw a y s c o n d e m n e d g a m in g -h o u s e s . T h is is n o t b ecau se

g a m b l i n g is w ic k e d in i ts e lf , bu t becau se o f th e e v ils a tte n d a n t on it . H a w 'k in s in h is P le a s o f th e

C r o w n ( B o o k I , c. 7 5 , s. 6 . 1 7 1 6 ed . p. 1 9 8 ) says ...

" ... a l l c o m m o n g a m in g h ouses, are nu isan ces in th e ey e o f th e law ', n o t o n ly b ecau se th e y

a r e g r e a t te m p ta t io n s to id len ess , b u t a lso because th e y a re a p t to d r a w to g e th e r g re a t

n u m b e r s o f d is o rd e r ly p erson s , w h ic h c a n n o t but be v e r y in c o n v e n ie n t to th e n e ig h b o u rh o o d ."

T h e statute law o f E n g la n d has l ik e w is e c o n d e m n e d g a m in g -h o u s e s . A s e a r ly as 1541 in the

t im e o f H e n r y V I I I ( 3 3 H y . 8 , c. 9 , p ara . 1 1 ) P a r l ia m e n t e n ac ted th a t n o p ers o n s ho u ld f o r his

g a i n k e e p a g a m in g -h o u s e . T h e reason th en w as because

3 ( 1 8 5 2 ) 18 Q .B . 69 2 .4 [ 1 8 9 7 ] ] Q .B . 4 9 8 .5 ( 1 8 7 7 ) 2 C .P . 4 4 5 .6 [ 1 8 9 1 ] 2 Q .B . 3 2 6 , C.A.7 ( 1 8 5 4 ) 16 Q .B . 19.

8 ( 1 8 6 2 ) 1 B e s t & Sm . 5; ( 1 8 7 0 ) L.R . 4 H .L . 449.9 ( 1 9 2 3 ) 57 l r .L .T . 138.10 [ 1 8 9 2 ] 1 Q .B . 86. D .C .11 ( 1 8 8 4 ) 12 Q . B .D . 4 6 1 , C .A .12 ( 1 8 8 0 ) 5 A . C . 2 1 4 , H .L .13 [ 1 9 4 2 ] A .C . 2 0 6 ; 5 8 T .L .R . 35 : [ 1941] 3 All E .R . 3 3 8 . H.L.14 ( 1 8 4 0 ) 11 A d . & E . 856: 9 L . J .Q .B . 287 .15 [ 1 9 6 8 ] 1 W .L .R . 4 0 6 . C .A . All E .R . C .A .

xtract f rom a JU S T iS da tabase

[1 9 6 8 ] 8 9 8

2 W .L .R . R eg. v. C o m m is s io n e r o f Po lice o f the M e tro p o lis , Ex L O R D

p a r te B la c k b u rn (C .A . ) D E N N I N GM .R .

g a m b l in g d is tu rb e d th e m i l i t a r y t ra in in g . I t d is tra c te d th e y o u n g m e n f r o m p ra c t is in g a r c h e ry

w h ic h w a s n e e d e d f o r th e d e fe n c e o f th e c o u n try . S e v e ra l sta tutes h a v e b een p assed s in c e . A l l o f

th e m c o n d e m n e d g a m in g houses because o f th e m is c h ie fs a tte n d a n t on th e m .

W h e n ro u le t te w a s f i rs t in tro d u c e d o v e r tw o h u n d re d ye a rs a g o , P a r l ia m e n t t r ie d to s top it. A

sta tu te o f 1 7 4 4 ( 1 8 G e o . 2 , c. 3 4 ) , re c ite d th a t th e " p e rn ic io u s g a m e c a lle d r o u le t , o r r o ly - p o ly ”

w a s p ra c tis e d . I t p r o h ib ite d a n y p erson f r o m k e e p in g a n y hou se f o r p la y in g it.

B u t a l l th o s e s ta tu tes p ro v e d o f no a v a i l to p re v e n t th e m is c h ie f . B la c k s to n e (C o m m e n ta r ie s

B o o k I V , c. 3 , s. 8 , 8 th e d ., 1 7 7 8 , p p . 1 7 1 , 1 7 3 ) , said th a t th e le g is la tu re h ad b ee n c a re fu l to

pass la w s to p r e v e n t " th is d e s tru c tiv e v ic e ," b u t these la w s had fa i le d to a c h ie v e th e i r o b je c t. T h e

re a s o n f o r th e f a i lu r e w a s b ecau se th e g a m b le rs w e r e to o q u ic k -w i t te d f o r th e la w to c a tc h th e m .

H e sa id ( C o m m e n ta r ie s , B o o k I V , c. 13, 8 th ed .. p . 1 7 3 ) th a t " .. . th e in v e n t io n s o f sharpers b e in g

s w i f t e r th a n th e p u n is h m e n t o f th e la w , w h ic h o n ly h un ts th e m f r o m o n e d e v ic e to a n o th e r ." S o

m u c h so th a t b y th e b e g in n in g o f th e n in e te e n th c e n tu ry g a m in g -h o u s e s w e r e a s c a n d a l. T h e

V ic t o r ia n le g is la t io n , a id e d b y th e V ic t o r ia n ju d g e s in Jenks v. T u r p i n re d u c e d th e e v i l b u t d id n o t e x te r m in a te it .

H is to r y has re p e a te d i t s e l f in o u r o w n t im e . P a r l ia m e n t m a d e an a t te m p t in I 9 6 0 to p u t th e

l a w on a sou nd fo o t in g . I t h ad b e fo re i t th e R e p o r t ( 1 9 4 9 - 1 9 5 1 ) o f th e R o y a l C o m m is s io n ( C m d .

• 8 1 9 0 ) on th e s u b je c t. T h e re p o rt d r e w a c le a r d is t in c t io n b e tw e e n p ro m o te rs w h o o rg a n is e d

g a m in g f o r th e i r o w n p r o f i t (w h ic h w a s an e v i l ) a n d tho se w h o a rra n g e d g a m in g f o r th e

e n jo y m e n t o f o th e rs w ith o u t m a k in g a p r o f i t o u t o f it th e m s e lv e s (su c h as g a m in g in a m e m b e rs '

c lu b w h ic h w a s in n o c e n t) . T h e R o y a l C o m m is s io n ( C m d . 8 1 9 0 , p . 1 2 5 , p a ra . 4 1 2 ) th o u g h t th a t

" th e m a in o b je c t o f th e c r im in a l la w s h o u ld be to p re v e n t person s b e in g in d u c e d to p la y f o r h ig h

stakes f o r th e p r o f i t o f th e p ro m o te r" . T h e y re c o m m e n d e d le g is la t io n to a c h ie v e th is o b je c t. T h e

d ra fts m e n set to w o r k an d p ro d u ce d the B i l l w h ic h b e c a m e the B e t t in g and G a m in g A c t , 1 9 6 0 ,

s in c e re -e n a c te d in th e B e t t in g . G a m in g and L o tte r ie s A c t , 1 9 6 3 . T h e o ld c o m m o n la w w a s

a b o lis h e d . T h e o ld sta tutes w e re re p e a le d . N e w sectio n s w e re e n a c te d w i th th e in te n t io n o f

e n s u r in g th a t p ro m o te rs d id n o t m a k e h ig h p ro fits o u t o f g a m in g , e i th e r in c lu b s o r e ls e w h e re .

T h e s e s ec tio ns h a v e la m e n ta b ly fa i le d to a c h ie v e th e i r o b je c t. Just as in B la c k s to n e 's t im e , so

in o u rs . T h e c a s in o c o m p a n ie s h a v e set up g a m in g -h o u s e s and m a d e la rg e p ro f i ts o ut o f th e m .

T h e y a lw a y s seem to be o n e d e v ic e ahead o f th e law-. T h e f irs t d e v ic e th e y used a f te r th e A c t o f

1 9 6 0 w a s to le v y a to l l on th e stakes. T h e y used to p ro m o te ro u le t te w i th o u t a z e r o a n d d e m a n d

s ix p e n c e fo r th e m s e lv e s on e v e r y s take . T h a t d e v ic e w'as

1 ( 1 8 8 4 ) 13 Q . B .D . 50 5 , D .C .

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119681 8 99I w I r r>• K e g- v - C o m m is s io n e r o f Police o f the M e tro p o lis , E x L O R D

p a rte B la c k b u rn (C .A . ) D E N N I N G

M .R .

f m r ! f rA v o ^ n *a|W ^U* 10 Quinu v \ Mackinnon.2 N e x t , th e y c la im e d th a t th e y c o u ld ta k e s ix p e n c e

r n n r t in In ^ .SP 'n . ° f t)ie w h ee l. T h a t d e v ic e to o w a s h e ld to b e u n la w fu l in th is, , . a,\ / , , , / (Merchandising) Ltd. v. Cloke. 3 T h e n th e y c la im e d th a t th e y c o u ld c h a rg e

Ray-inotid^ e v e r y 2 0 m in u te s . T h a t to o w a s fo u n d to b e u n la w fu l in Kelland v.

ri-,5 r n l ^ ° ne ' ' r ! ' 0? a t ^ ' s t ' m e su cceeded . I t w a s in c h e m in -d e - fe r . T h e p ro m o te rsl n w f n i ; . e v e r y "sh oe" w h ic h to o k a b o u t 3 5 m in u te s . T h is w a s h e ld to be

f n r o w o 11 •jc V-' Mackmnon. 5 1 m u s t say I d o u b t th a t d ec is io n . I s h o u ld h a v e th o u g h t th a t £ 5

p ro f i t a b le m in u te s w a s w o rs e th a n 3 0 s h il l in g s e v e ry h a l f h o u r . A t a n y ra te , i t is m o r e

ca-ifs’ *he casino companies thought out a new device which proved to be far lnno niwn /1 Promoted roulette with a zero. This is a game in which the chances over a-rrnnoAH tv,- H ^ht'ly favour the holder of the bank. Under this new device, the organisers so

i gS • ey th«nselves near,y aJways held the bank. But they claimed it was lawful t h , CT0.UPA e* ^ h3,f hour "offered the bank" t0 the Payers. Very rarely, if ever, was cn?nc Iff A *?e ; ?r s,lmple reason 1)131 !t may be ruinous to hold the bank for only a fewSflnliN i! 1S °unly wortP ho)dinS if y°u can hold it for a long time, such as a week

ertheless theA organisers claimed that this "offer of the bank" rendered the gaming

• th e re w p tp r r m f r ' t . s u p p ®rte » » 'e w e r e t o ld > b y th e o p in io n o f s o m e la w y e r s in th e T e m p le , b u t

s i r e r i S T r r i ? . ^ V1CWS^ t a n y ra t f ’- , ? ! S d e v ic e %vas p r o f i t a b le - F o r a t im e it w a sW r v n r j ’ p r o v id ed it w a s s k i l fu l ly w o r k e d . I t w a s n o t w o r k e d v e r y s k i l f u l l y in th e

Bnlinnl n T l ' p 6 a * T ° clo m p a n ,e s w e re c o n v ic te d , o n e in Blackpool, Casino Club , , ; i nn th e o th e r in S o u th e n d , Kursaal Casino Ltd. v. Crickin' B u t th is

t I ty t)le t h | r d csase, and the c as in o c o m p a n y w a s a c q u it te d in th eD iv is io n a l C o u r t in Kursaal Casino Ltd. v. Crickiu (No. 2).* T h a t case, h as h o w e v e r r e c e n t ly

B m ° t h e -Se L o r d s -9 T h e d e v ic e o f " o f fe r in g th e b a n k " w i l l n o lo n g e r w o r k .%u u c o m p a n ie s d o n o t seem to be u n d u lv w o r r ie d . T h e y h a v e n o t s to p p e d th e ir

t r a u b l f n l w 'm " ' « ■ ° k tJ?«ir t h m k m g -caps an d b ro u g h t o u t a n o th e r d e v ic e . T h e y d o n o t t io u b le now to o f f e r th e b a n k " to a p la y e r . T h e y g iv e a w in n e r t w o k in d s o f c h ip s o r d in a r y

c h ip s on w h ic h he c o lle c ts h is w in n in g s , an d spec ia l ch ips w h ic h he th r o w s b a c k . N o d o u b t

2 f 196 3 J 1 Q .B . 8 7 4 :3 [ 1 9 6 3 ] 2 Q .B . 3 4 0 :4 [1 964] 2 Q .B . 108;

1963] 2 W .L .R . 3 9 ! : [ 1963] 1 All E.R . 570. D . C1963] 2 W .L .R . 8 9 9 ; [1963] 2 All E.R . 25 8 . C .A

r , n , ^ A . [ 1964] 2 W .L .R . 6 6 2 ; [1964] 1 Al l E.R . 56 4 . D .C .

6 ( & * ! 6 4 LG.R ,55, D.C. W ’L '^* 16S- * l 9 6 4 l 1 A " ' « • D.C.7 [ 1 9 6 6 ] 1 W .L .R . 9 6 0 ; [1 966] 2 A l l E .R . 63 9 , D .C8 [ 1 9 6 7 ] 1 W .L .R . 1227; [ 1 9 6 7 ] 3 Al l E .R . 36 0 . D.C.

9 [ 1968] 1 W .L .R . 53 ; [ 1968] 1 All E .R . 139. H.L.(E.) .

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11968] 9 0 0

2 W .L .R . R eg. v. C o m m is s io n e r o f Police o f the M e tro p o lis , E x L O R D

p a rte B la c k b u rn ( C .A . ) D E N N I N GM . R .

th e y h o p e th a t th e s a m e w i l l h a p p e n w i th th is d e v ic e as w i th th e o th ers . I t w i l l h a v e to be tes te d

in th e cou rts . M e a n w h i l e th e y e x p e c t to c a rr y on w i th th e ir g a m in g . I f th is is th e n h e ld to be

u n la w fu l , th e y w i l l t r y to th in k o f a n o th e r d e v ic e . A n d so on ad in f in i tu m : a t least th e y m a y th in k so.

W h a t a re th e c o n seq u en ces? T h e y w e r e s tated w i th s tr ik in g c la r i t y b y th e S e c re ta ry o f S ta te

fo r H o m e A f f a i r s , M r . R o y J e n k in s , in " T h e T im e s " n e w s p a p e r o f S e p te m b e r 13 , 1 9 6 6 . H e is

re p o r te d as s a y in g :

" T h e B e t t in g a n d G a m in g A c t , 1 9 6 0 , has led to abuses, p a r t ic u la r ly in th e f ie ld o f

g a m in g c lu b s , w h ic h w e r e n o t fo res e e n b y its p ro m o te rs . T h is c o u n tr y has b e c o m e a

g a m b le r 's p a ra d is e , m o r e w id e o p en in th is re s p e c t than a n y c o m p a r a b le c o u n tr y . T h is h as le d

to a c lo s e a n d g r o w in g c o n n e c t io n b e tw e e n g a m in g c lub s and o rg a n is e d c r im e , o fte n v io le n t

c r im e , in L o n d o n a n d o th e r b ig c it ie s . T h e fa t p ro f i ts m a d e b y p ro p r ie to rs (o f te n o u t o f th e

p la y i t s e l f a n d q u i te c o n tra ry to th e in te n t io n o f th e 1 9 6 0 G a m in g A c t ) m a d e th e m s it t in g

ta rg e ts f o r p ro te c t io n ra c k e ts . In a d d it io n , g a m in g on c re d it , w i th g a m in g d eb ts u n e n fo rc e a b le

at la w , m e a n s th a t s tro n g -a rm m e th o d s a re s o m e tim e s used to e x to r t p a y m e n t f r o m th o s e w h o

h a v e g a m b le d b e y o n d th e ir m e a n s ."

M r . B la c k b u r n says th a t th is state o f a f fa irs is d u e to th e fa i lu r e o f th e p o l ic e to e n fo rc e th e

la w a n d seeks to c o m p e l th e m to do it.

2 . T h e steps ta k e n b y M r . B la c k b u rn .

I n ~ T 9 5 ( n v i r . B la c k b u r n w a s c o n c e rn ed a b o u t th e w a y in w h ic h th e b ig L o n d o n c lu b s w e re

b e in g ru n . H e w e n t to see a re p re s e n ta tiv e o f th e C o m m is s io n e r o f th e P o l ic e o f th e M e t r o p o l is

and to ld h im th a t i l le g a l g a m in g w a s ta k in g p la c e in v i r tu a l ly a l l L o n d o n cas in o s. H e w a s g iv e n

to u n d e rs ta n d , he says, th a t a c t io n w o u ld be ta k e n . B u t n o th in g a p p e a re d to b e d o n e . O n M a r c h

15, 1 9 6 7 , M r . B la c k b u r n w r o te a le tte r to th e c o m m is s io n e r in w h ic h he a g a in s ta ted th a t i l le g a l

g a m in g w a s ta k in g p la c e . H e asked the c o m m is s io n e r to assist h im in p ro s e c u tin g s e v e ra l L o n d o n

c lubs . F o l lo w in g th a t le tte r he w a s seen b y M r . B e a rm a n on b e h a l f o f th e c o m m is s io n e r . M r .

B e a rm a n e x p la in e d to h im th a t th e re w e r e d if f ic u l t ie s in e n fo rc in g th e p ro v is io n s o f th e A c t . H e

a d d e d th a t the w a v in w h ic h p o l ic e m a n p o w e r w a s used w a s a m a t te r f o r th e d is c re t io n o f the

c o m m is s io n e r ; a n d th a t it w a s f e l t tha t, as th e g a m in g la w stood, th e re w e r e h ig h e r p r io r i t ie s fo r

the d e p lo y m e n t o f p o l ic e m a n p o w e r . H e a lso stated th a t it w o u ld be c o n tra ry to a p o l ic y d e c is io n

f o r h im to p ro m o te o r assist in th e p ro m o tio n o f a p ro se c u tio n f o r b re a c h o f se c tio n 3 2 o f the A c t o f 1 9 6 3 .

M r . B la c k b u r n w a s d is s a t is f ie d and m a d e a p p l ic a t io n to the D iv is io n a l C o u r t f o r a m a n d a m u s

d ire c te d to the c o m m is s io n e r r e q u ir in g th ree th in gs : ( 1 ) to assist h im a n d o th e rs to p ro secu te

g a m in g c lub s; ( 2 ) to assist h im in a p a r t ic u la r c o m p la in t aga in st

© A n extract from a JUSTIS database

|1 9 6 8 | 901

2 W .L .R . Reg. v. C o m m is s io n e r o f Police o f the M e tro p o lis , E x L O R D

p a r te B la c k b u rn (C .A . ) D E N N I N GM . R .

a n a m e d c lu b ; a n d ( 3 ) to re v e rs e th e p o l ic y d ec is io n . T h e D iv is io n a l C o u r t re je c te d h is

a p p l ic a t io n . H e a p p e a ls in p ers o n to th is cou rt.

M r . W o r s le y , f o r th e c o m m is s io n e r , to o k an o b je c t io n to th e ju r is d ic t io n o f th is c o u rt . H e

a rg u e d th a t th is w a s an a p p e a l f ro m a ju d g m e n t o f th e H ig h C o u r t " in a c r im in a l cause o r

m a tte r ," and tha t an a p p e a l d id n o t l ie to th e C o u r t o f A p p e a l , see se c tio n 31 ( 1 ) ( o ) o f th e

S u p r e m e C o u r t o f J u d ic a tu re (C o n s o l id a t io n ) A c t , 1 9 2 5 . H e re fe rre d us to s e v e ra l cases o n th e

s u b je c t, p a r t ic u la r ly Provincial Cinematograph Theatres v. Newcastle-upon-Tyne Profiteering Committee10 in th e H o u s e o f L o rd s . I th in k th e re m ig h t p erhaps h a v e b een s o m e th in g in th is

o b je c t io n i f M r . B la c k b u rn had p ers is ted in h is f irs t t w o requests . T h e y m ig h t be sa id to b e steps

in a c r im in a l m a t te r . B u t M r . B la c k b u r n w ith d re w - th o se t w o a n d c o n f in e d h im s e l f to th e th ir d ,

i .e . , r e q u ir in g th e c o m m is s io n e r to re v e rs e h is p o l ic y d ec is io n . I t seem s to m e th a t th is is n o t a

step in a n y " c r im in a l cause o r m a t te r ." M r . B la c k b u r n can a p p e a l, I th in k , to th is c o u r t on th e

m a tte r . S o 1 tu rn to it.

3 . T h e P o l ic y D e c is io n .

T h e p o l i c e s e e l si on w a s a c o n f id e n t ia l in s tru c tio n issued to s e n io r o f f ic e rs o f th e M e t r o p o l i t a n

P o lic e . M r . B e a r m a n e x h ib ite d it in h is a f f id a v i t in these p ro ce e d in g s . I t w a s d a te d A p r i l 2 2 ,

1 9 6 6 . a n d w a s in e f fe c t an in s tru c tio n to ta k e n o p ro ce e d in g s a g a in s t c lu b s f o r b reach o f th e

g a m in g la w s un less th e re w e re c o m p la in ts o f c h e a t in g o r th e y had b e c o m e h au n ts o f c r im in a ls .

T h e a c tu a l te rm s o f th e in s tru c tio n w e r e as fo l lo w s :

" C o n f id e n t ia l in s tru c tio n . G a m in g in re g is te red o r l icensed c lu b s . F o r th e t im e b e in g a l l

a p p l ic a t io n s f o r a u th o r ity f o r an in s id e o b s e rv a t io n in licensed o r re g is te re d c lu b s fo r th e

p u rp o se o f d e te c t in g g a m in g a re to be s u b m it te d to A . I . b ranch f o r m y c o v e r in g a p p ro v a l ."

M r . B e a r m a n e x p la in e d in h is a f f id a v i t th a t th e reason fo r the in s tru c tio n w'as:

" In v ie w o f th e u n c e r ta in ty o f th e la w , th e ex p e n se an d m a n p o w -e r in v o lv e d in k e e p in g

g a m i n g o b s e rv a t io n s in such c lubs w e re n o t ju s t i f ie d unless th e re w e re c o m p la in ts o f c h e a t in g

o r r e a s o n to suppose th a t a p a r t ic u la r c lu b had b e c o m e a h au n t o f c r im in a ls ."

h a p p e a r e d in e v id e n c e b e fo re us th a t th is p o l ic y d e c is io n w a s m a d e u n d e r a m is a p p re h e n s io n .

I t w a s th o u g h t th a t Kursaal Casino Lid. v. Crickiu]] w a s g o in g to th e H o u s e o f L o r d s , in w 'h ich

e \ e n t the l aw w o u ld be settled a b o u t th e " o f fe r o f th e b a n k . " B u t in p o in t o f fa c t th a t case w a s

not g o in g th e re , and the c o m m is s io n e r 's o ff ic e rs do n o t seem to h a v e know-n o f it. 1 d o n o t k n o w

tha t t h a t m is a p p re h e n s io n w o u ld h av e m a d e m u c h

10 ( 1 9 2 1 ) 2 7 C o x C.C. 63; 37 T .L .R . 799 . H.L.11 [ 1 9 6 6 ] 1 W .L .R . 960 .

£■ An extract from a JUSTIS (database

11968] 90 2

2 W .L .R . Reg. v. C o m m is s io n e r o f Po lice o f the M e tro p o lis , E x L O R Dp a r te B la c k b u rn (C .A . ) D E N N I N G

M . R .

d if fe r e n c e . T h e c o m m is s io n e r g o t to k n o w la te r th a t th a t case w a s n o t g o in g th e re , a n d h e d id

n o t r e v o k e th e p o l ic y d e c is io n e v e n th e n . I t w a s th e S o u th e n d p o l ic e w h o to o k a c t io n , as th e y

h ad d o n e b e fo re . T h e M e t r o p o l i t a n P o l ic e d id n o t ta k e a c tio n : it w a s th e e n te rp r is in g

S u p e r in te n d e n t C r ic k i t t o f S o u th e n d .

A t a n y ra te , th e re s u lt o f th e p o l ic y d e c is io n o f A p r i l 2 2 , 1 9 6 6 , w a s th a t th e n c e fo r w a rd , in th is

g re a t m e t ro p o l is , th e b ig g a m in g c lu b s w e r e a l lo w e d to c a rry on w i th o u t a n y in te r fe re n c e b y th e

p o lic e . W e w e re to ld th a t in o n e o r tw o cases o b s e rv a t io n s h ad p re v io u s ly b ee n started : b u t a f t e r

th is p o l ic y d e c is io n th e y w e r e d is c o n t in u e d . N o p ro se c u tio n s w e re in s t itu te d in th e m e tro p o l is

a g a in s t th e s e c lu b s . T h a t is w h a t M r . B la c k b u r n c o m p la in s o f . H e says th a t th e p o l ic y d e c is io n

w a s e rro n e o u s an d th a t i t w a s th e d u ty o f th e c o m m is s io n e r to p ro se c u te . T o th is I n o w tu rn .

4 . T h e P u t ) ' o f th e C o m m is s io n e r o f P o l ic e o f th e M e t r o p o l is .

T h e o f f ic e o F X o m m i s s io n e r o T~P 61 ice w i th in th e M e t r o p o l is dates b a c k to 1 8 2 9 w h e n S i r

R o b e r t P e e l in t r o d u c e d h is d is c ip l in e d fo r c e . T h e c o m m is s io n e r w a s a ju s t ic e o f th e p ea c e

s p e c ia l ly a p p o in te d to a d m in is te r th e p o l ic e fo r c e in th e m e tro p o l is . H is c o n s t itu t io n a l status has

n e v e r b een d e f in e d e i th e r b y s ta tu te o r b y th e courts . I t w a s c o n s id e re d b y th e R o y a l

C o m m is s io n on th e P o l ic e in th e ir R e p o r t in 1 9 6 2 (C m n d . 1 7 2 8 ) . B u t I h a v e n o h e s ita t io n in

h o ld in g th a t , l ik e e v e ry c o n s ta b le in th e la n d , h e s h o u ld b e, and is, in d e p e n d e n t o f th e e x e c u t iv e .

H e is n o t s u b je c t to th e o rd ers o f th e S e c r e ta ry o f S ta te , save th a t u n d e r th e P o l ic e A c t , 1 9 6 4 ,

th e S e c r e ta ry o f S ta te can c a l l u p o n h im to g iv e a re p o r t, o r to re t i re in th e in teres ts o f

e f f ic ie n c y . I h o ld it to be th e d u ty o f th e C o m m is s io n e r o f P o l ic e o f th e M e t r o p o l is , as it is o f

e v e r y c h ie f c o n s ta b le , to e n fo rc e th e la w o f th e lan d . H e m u s t ta k e steps so to post h is m e n th a t

c r im e s m a y be d e te c te d ; an d th a t h onest c it iz e n s m a y g o a b o u t th e ir a f fa irs in p ea c e . H e m u s t

d e c id e w h e th e r o r n o suspected person s a re to b e p ro se c u te d ; a n d , i f n eed be, b r in g th e

p ro s e c u tio n o r see th a t it is b ro u g h t . B u t in a l l th ese th in g s h e is n o t th e s e rv a n t o f a n y o n e , save

o f th e la w itse lf . N o M in is te r o f th e C r o w n can te l l h im th a t h e m u s t, o r m u s t n o t , k e e p

o b s e rv a t io n on th is p la c e o r tha t; o r th a t he m u s t, o r m u s t n o t. p ro se c u te th is m a n o r th a t o ne .

N o r can a n y p o l ic e a u th o r i ty te l l h im so. T h e re s p o n s ib i l i ty fo r la w e n fo rc e m e n t l ie s on h im . H e

is a n s w e ra b le to th e l a w an d to th e la w a lo n e . T h a t appears s u f f ic ie n t ly f r o m Fisher v. Oldham Corporation,12 and Attorney-General for New South Wales v. Perpetual Trustee Co. Ltd. |;'

A l th o u g h th e c h ie f o f f ic e r s o f p o l ic e a re a n s w e ra b le to th e la w , th e re a re m a n y f ie ld s in w h ic h

th e y h av e a d is c re t io n w i th w h ic h th e la w w i l l n o t in te r fe re . F o r in s ta n c e , it is fo r the

12 [ 1 9 3 0 ] 2 K .B . 3 6 4 : 4 6 T .L .R . 390 .13 [ 1 9 5 5 ] A .C . 4 5 7 ; [ 1 9 5 5 ] 2 W .L .R . 7 0 7 ; [ 1 9 5 5 ] 1 Al l E .R . 846 , P.C .

© A n extract from a JUSTIS database

|1968] 9032 W .L .R . Reg. v . C o m m is s io n e r o f Police o f the M e tro p o lis , E x L O R D

p a r te B la c k b u rn (C .A . ) D E N N I N GM . R .

C o m m is s io n e r o f P o l ic e o f th e M e t r o p o l is , o r th e c h ie f con s ta b le , as th e case m a y b e , to d e c id e

in a n y p a r t ic u la r case w h e th e r in q u ir ie s s h o u ld be p u rsu e d , o r w h e th e r an a rre s t s h o u ld b e m a d e ,

o r a p ro s e c u tio n b ro u g h t. I t m u s t b e f o r h im to d e c id e o n th e d is p o s it io n o f h is fo r c e a n d th e

c o n c e n tra t io n o f h is reso urces o n a n y p a r t ic u la r c r im e o r a rea . N o c o u rt can o r s h o u ld g iv e h im

d ir e c t io n on such a m a tte r . H e can a ls o m a k e p o l ic y d ec is io n s and g iv e e f fe c t to th e m , as, f o r

in s ta n c e , w a s o fte n d o n e w h e n p ro s e c u tio n s w e r e n o t b ro u g h t f o r a t te m p te d s u ic id e . B u t th e re a re

s o m e p o l ic y d e c is io n s w i th w h ic h , I th in k , th e co u rts in a case c a n , i f n e c e s s a ry , in te r fe re .

S u p p o se a c h i e f c o n s ta b le w e re to issue a d ir e c t iv e to h is m e n th a t n o p ers o n s h o u ld be

p ro s e c u te d fo r s te a lin g a n y g o o d s less th a n £ 1 0 0 in v a lu e . I s h o u ld h av e th o u g h t th a t th e c o u rt

c o u ld c o u n te rm a n d it. H e w o u ld be f a i l in g in h is d u ty to e n fo rc e th e la w .

A q u e s tio n m a y b e ra ised as to th e m a c h in e r y b y w h ic h h e c o u ld b e c o m p e lle d to d o h is d u ty .

O n p r in c ip le , i t seem s to m e th a t o n c e a d u ty e x is ts , th e re s h o u ld b e a m e a n s o f e n fo r c in g it.

T h is d u ty can b e e n fo rc e d . 1 th in k , e i th e r b y a c tio n a t th e su it o f th e A t to r n e y -G e n e r a l : o r b y th e

p re r o g a t iv e w r i t o f m a n d a m u s . I a m m in d f u l o f th e cases c ited b y M r . W o r s le y w h ic h he sa id

l im i te d th e scope o f m a n d a m u s . B u t I w o u ld r e p ly th a t m a n d a m u s is a v e ry w id e r e m e d y w h ic h

has a lw 'ays b een a v a i la b le a g a in s t p u b l ic o f f ic e r s to see th a t th e y d o th e ir p u b l ic d u ty . I t w e n t in

th e o ld d ays a g a in s t ju s t ic e s o f th e p e a c e b o th in th e ir ju d ic ia l a n d in th e ir a d m in is t r a t iv e

fu n c t io n s . T h e le g a l status o f th e C o m m is s io n e r o f P o l ic e o f th e M e t r o p o l is is s t i l l th a t h e is a

ju s t ic e o f th e p e a c e , as w e l l as a c o n s ta b le . N o d o u b t th e p a r ty w h o a p p lie s fo r m a n d a m u s m u s t

s h o w th a t h e has s u f f ic ie n t in te res t to be p ro te c te d a n d th a t th e re is n o o th e r e q u a l ly c o n v e n ie n t

r e m e d y . B u t o n c e th is is s h o w n , th e re m e d y o f m a n d a m u s is a v a i la b le , in case o f n e e d , e v e n

a g a in s t th e C o m m is s io n e r o f P o l ic e o f th e M e t r o p o l is .

C a n M r . B la c k b u rn in v o k e th e r e m e d y o f m a n d a m u s here? I t is I th in k an o p e n q u e s tio n

w h e th e r M r . B la c k b u r n has a s u f f ic ie n t in te re s t to b e p ro tec ted . N o d o u b t a n y p erson w h o w a s

a d v e r s e ly a ffe c te d b y th e a c tio n o f th e c o m m is s io n e r in m a k in g a m is ta k e n p o l ic y d e c is io n w o u ld

h a v e such an in te res t. T h e d i f f ic u l t y is to see how ' M r . B la c k b u rn h im s e l f has b een a f fe c te d . B u t

w ith o u t d e c id in g th a t q u e s tio n , 1 tu rn to see w h e th e r it is s h o w n th a t th e C o m m is s io n e r o f P o l ic e

o f th e M e t r o p o l is has fa i le d in h is d u ty . 1 h a v e n o d o u b t th a t s o m e o f th e d i f f ic u l t ie s h a v e b ee n

d u e to th e la w y e rs and th e cou rts . R e f in e d a rg u m e n ts h av e b een p u t fo r w a r d on th e w o r d in g o f

th e s ta tu te w h ic h h a v e g a in e d a c c ep tan c e b y s o m e fo r a t im e . I can w e l l u n d ers tan d th a t th e

c o m m is s io n e r m ig h t h es ita te f o r a t im e u n t i l tho se d if f ic u l t ie s w e re re s o lv e d ; b u t, on th e o th e r

h an d , it does seem to m e th a t h is p o l ic y d e c is io n w a s u n fo r tu n a te . P e o p le m ig h t w 'e ll th in k th a t

th e law w a s n ot b e in g e n fo rc e d , e s p e c ia l ly w h e n th e

An extract from a JU S T lS database

11968)2 W.L.R. Reg. v. Commissioner of Police o f the Metropolis, Ex


904L O R D

D E N N I N GM .R .

g a m in g c lu b s w e r e o p e n ly and f la g r a n t ly b e in g c o n d u c te d as th e y w e r e in th is g re a t c i ty . P e o p le

m ig h t e v e n g o fu r th e r an d suspect th a t th e p o l ic e th e m s e lv e s tu rn e d a b l in d e y e to it . I do n o t

m y s e l f th in k th a t w a s so. I d o n o t th in k th a t th e s u g g e s tio n s h o u ld e v e n be m a d e . B u t

n ev e r th e le s s th e p o l ic y d e c is io n w a s , I th in k , m o s t u n fo r tu n a te .

T h e m a t te r has, I t ru s t, b ee n c le a re d up n o w . O n D e c e m b e r 19 , 1 9 6 7 , th e H o u s e o f L o r d s in

Kursaal Casino Ltd. v. Crickitt (No. 2 )u m a d e it q u ite c le a r th a t ro u le t te w i th a z e r o w a s n o t

re n d e re d la w fu l s im p ly b y th e " o f fe r o f th e b a n k " . F o l lo w in g th a t d e c is io n , on D e c e m b e r 3 0 ,

1 9 6 7 , th e c o m m is s io n e r issued a s ta te m e n t in w h ic h h e sa id : " I t is th e in te n t io n o f th e

M e t r o p o l i t a n P o l ic e to e n fo rc e th e la w as it h as b ee n in te rp re te d ." T h a t im p l ic i t ly r e v o k e d th e

p o l ic y d e c is io n o f A p r i l 2 2 , 1 9 6 6 ; and th e c o m m is s io n e r b y h is c o u n s e l g a v e an u n d e r ta k in g to

th e c o u r t th a t th a t p o l ic y d e c is io n w o u ld b e o f f i c ia l l y re v o k e d . W e w e r e a ls o to ld th a t im m e d ia te

steps a re b e in g ta k e n to c o n s id e r th e " g o in g s -o n " in th e b ig L o n d o n c lu b s w i th a v i e w to

p ro s e c u tio n i f th e re is a n y th in g u n la w fu l . T h a t is a l l th a t M r . B la c k b u rn o r a n y o n e e lse can

re a s o n a b ly e x p e c t .

5 . C o n c lu s io n.

T in s case~has s h o w n a d e p lo ra b le s ta te o f a f fa i rs . T h e l a w has n o t b een e n fo rc e d as i t s h o u ld .

T h e la w y e r s th e m s e lv e s a re a t least p a r t ly re s p o n s ib le . T h e n ic e t ie s o f d ra f t in g a n d th e

• r e f in e m e n ts o f in te rp re ta t io n h a v e led to u n c e rta in t ie s in th e la w its e lf . T h is has d is c o u ra g e d th e

p o l ic e f r o m k e e p in g o b s e rv a t io n a n d ta k in g a c t io n . B u t it does n o t , I th in k , e x e m p t th e m a ls o

f r o m th e i r share o f th e re s p o n s ib i l i ty . T h e p ro p r ie to rs o f g a m in g houses h a v e ta k e n a d v a n ta g e o f

th e s itu a t io n . B y o n e d e v ic e a f te r a n o th e r th e y h a v e k e p t a h e a d o f th e la w . A s soo n as on e

d e v ic e has b een h e ld u n la w fu l , th e y h av e s ta rted a n o th e r . B u t th e d a y o f re c k o n in g is a t h a n d .

N o lo n g e r w i l l w e to le ra te these d ev ic e s . T h e la w m u s t b e s e n s ib ly in te rp re te d so as to g iv e

e f fe c t to th e in te n t io n s o f P a r l ia m e n t ; and th e p o l ic e m u s t see th a t i t is e n fo rc e d . T h e ru le o f la w m u s t p re v a il .

S A L M O N L .J .T h e c h ie f fu n c t io n o f th e p o l ic e is to e n fo rc e th e la w . T h e D iv is io n a l C o u r t le f t

o p en th e p o in t as to w h e th e r an o rd e r o f m a n d a m u s c o u ld issue a ga in s t a c h ie f p o l ic e o f f ic e r

s h o u ld he re fu s e to c a rry o u t th a t fu n c t io n . C o n s t i tu t io n a l ly it is c le a r ly im p e rm is s ib le f o r th e

S e c re ta ry o f state fo r H o m e A f fa i r s to issue a n y o rd e r to th e p o l ic e in resp ect o f la w

e n fo r c e m e n t . In th is c o u rt it has b een a rg u e d on b e h a l f o f th e c o m m is s io n e r th a t th e p o lic e are

u n d e r n o le g a l d u ty to a n y o n e in reg ard to la w e n fo rc e m e n t . I f th is a rg u m e n t w e re co rre c t it

w o u ld m e a n th a t in s o fa r as th e ir m o s t im p o r ta n t fu n c t io n is c o n c e rn e d , the

14 [ 1 9 6 8 ] 1 W .L .R , 53.

C- An extract from a JU STIS da tabase

11968)2 W.L.R. Reg. v. Commissioner of Police of the Metropolis, Ex


9 0 5

S A L M O NL .J .

p o l ic e a re a b o v e th e la w a n d th e re fo r e im m u n e f r o m a n y c o n tro l b y th e c o u rt. I re je c t th a t

a rg u m e n t . In m y ju d g m e n t th e p o l ic e o w e th e p u b l ic a c le a r le g a l d u ty to e n fo rc e th e la w - a

d u ty w h ic h 1 h a v e no d o u b t th e y re c o g n is e a n d w h ic h g e n e ra l ly th e y p e r fo rm m o s t

c o n s c ie n t io u s ly an d e f f ic ie n t ly . In th e e x t r e m e ly u n l ik e ly e v e n t , h o w e v e r , o f th e p o l ic e f a i l in g o r

re fu s in g to c a rry o u t th e ir d u ty , th e c o u rt w o u ld n o t be p o w e r le s s to in te rv e n e . F o r e x a m p le , i f ,

as is q u ite u n th in k a b le , th e c h ie f p o l ic e o f f ic e r in a n y d is tr ic t w e r e to issue an in s tru c tio n th a t as

a m a t te r o f p o l ic y th e p o l ic e w o u ld ta k e n o steps to p ro se c u te a n y h o u s e b re a k e r , I h a v e l i t t le

d o u b t b u t th a t a n y h o u s e h o ld e r in th a t d is tr ic t w o u ld b e a b le to o b ta in an o rd e r o f m a n d a m u s f o r

th e in s tru c t io n to b e w ith d ra w n . O f cou rse , th e p o l ic e h a v e a w id e d is c re t io n as to w h e th e r o r

n o t th e y w i l l p ro s e c u te in a n y p a r t ic u la r case. In m y ju d g m e n t , h o w e v e r , th e a c tio n I h a v e

p o s tu la te d w o u ld be a c le a r b re a c h o f d u ty . I t w o u ld b e so im p r o p e r th a t i t c o u ld n o t a m o u n t to

a n e x e rc is e o f d is c re t io n .

M r . W o r s le y has a rg u e d th a t th e d is c re t io n is a b s o lu te a n d can in n o c irc u m s ta n c e s be

c h a l le n g e d in th e cou rts . H e ins tances th e p o l ic y d e c is io n n o t to p ro se c u te , save in e x c e p t io n a l

c irc u m s ta n c e s , y o u n g te e n a g e b o y s w h o h a v e h ad s e x u a l in te rc o u rs e w i th g ir ls ju s t u n d e r th e age

o f s ix te e n . B u t th is , in m y v ie w , is an e n t i r e ly d if f e r e n t a n d p e r fe c t ly p ro p e r e x e rc is e o f

d is c r e t io n . T h e o b je c t o f th e C r im in a l L a w A m e n d m e n t A c t , 1 8 8 5 , w h ic h m a d e it a c r im in a l

o f fe n c e to h a v e s e x u a l in te rc o u rs e w i th g ir ls u n d e r 16 , w a s passed in o rd e r to p ro te c t y o u n g g ir ls

a g a in s t s e d u c tio n . U n fo r tu n a te ly , in m a n y o f th e cases to d a y in w h ic h te e n a g e b o y s a re

c o n c e rn e d , it is th e y ra th e r th a n th e g ir ls w h o a re in n eed o f p ro te c t io n . T h e s e a re n o t th e k in d s

o f cases w h ic h th e le g is la tu re h ad in m in d w h e n th e C r im in a l L a w A m e n d m e n t A c t , 1 8 8 5 , w a s

passed. M o r e o v e r , e x p e r ie n c e has s h o w n th a t i f y o u n g b o y s a re p ro se c u te d in such

c irc u m s ta n c e s , th e cou rts u s u a lly ta k e th e h u m a n e an d s en s ib le cou rse o f im p o s in g n o p e n a lty .

T h e o b je c t o f th e s ta tu te w h ic h m a d e h o u s e b re a k in g a c r im e w a s q u ite s im p ly to p re v e n t

h o u s e b re a k in g in th e in teres ts o f s o c ie ty . S im i la r ly , th e o b je c t o f sec tio ns 3 2 to 4 0 o f th e B e t t in g ,

G a m in g and L o t te r ie s A c t . 1 9 6 3 , and th e c o rre s p o n d in g p ro v is io n s o f th e B e t t in g and G a m in g

A c t . 1 9 6 0 , w h ic h th e s ta tute o f 1 9 6 3 re p la c e d , w a s q u ite s im p ly to p ro te c t s o c ie ty ag a in s t th e

e v i ls w h ic h w o u ld n e c e s s a r i ly f o l lo w w e re it p o s s ib le to b u i ld u p la rg e fo r tu n e s b y th e

e x p lo i ta t io n o f g a m in g , T h e sta tutes o f 1 9 6 0 and 1 9 6 3 w e r e d es ig n e d to p re v e n t such e x p lo ita t io n

and w o u ld h av e b een e n t i r e ly e f fe c t iv e to do so h ad th e y b een e n fo rc e d . R e g r e t ta b ly th e y h a v e

n ot b een p ro p e r ly e n fo rc e d . A s a re s u lt, and e n t i re ly c o n tra ry to th e in te n t io n an d c o n te m p la t io n

o f P a r l ia m e n t , an im m e n s e g a m in g in d u s try , p a r t ic u la r ly in L o n d o n , has b een a l lo w e d to grow ' up

d u r in g the last seven y ears . T h is has in e v i ta b ly b ro u g h t g ra v e s o c ia l e v i ls in its t ra in - p ro te c tio n

ra c k e ts , c r im e s o f v io le n c e and w id e s p re a d c o r ru p t io n .

£ An extract f rom a JUSTIS database

44

|1968)2 W.L.R. Reg. v. Commissioner of Police of the Metropolis, Ex


906SALMON

L.J.

T h e r e a re n o d o u b t a f e w la rg e e s ta b lis h m e n ts w h ic h a re re s p e c ta b ly ru n a n d f ro m w h ic h these

e v i ls a re e x c lu d e d . B u t fo r e v e ry one o f th ese , th e re a re scores o f o th e rs . A s lo n g as it re m a in s

p o s s ib le f o r la rg e fo r tu n e s to be m a d e b y th e p r iv a te e x p lo ita t io n o f g a m in g , th e e v i ls to w h ic h I

h a v e re fe r r e d w i l l g r o w and f lo u r is h u n t i l th e y th re a te n th e w h o le f a b r ic o f s o c ie ty . S in c e la rg e

fo r tu n e s ca n b e m a d e o u t o f the e x p lo i ta t io n o f g a m in g , n a tu r a l ly a g rea t d e a l o f in g e n u ity has

b ee n e x e rc is e d to d e v is e sch em es f o r th e p u rp o se o f e v a d in g th e la w . W i t h a l i t t le m o re

re s o lu t io n and e f f ic ie n c y , these schem es c o u ld and s h o u ld h a v e b een fru s tra te d .

In th e p re s e n t case w e a re c o n c e rn ed c h ie f ly w i th th e g a m e o f ro u le t te p la y e d w i th a z e ro . F o r

th e re a s o n s w h ic h a p p e a r in the e v id e n c e b e fo re us, so lo n g as th e od d s o f fe r e d a g a in s t a n y on e

n u m b e r a re n o m o r e th a n 3 5 to 1, th e ch an ces fa v o u r th e b a n k b y 3 to 1 0 p e r ce n t., a c c o rd in g

to th e w a y th e b e ts a re la id . I f th e house h o ld s th e b a n k , th e h o u se in th e lo n g ru n is b o u n d to

w in . I t f o l lo w s th a t th is c o n tra v e n e s sec tio n 3 2 ( 1 ) (a) a n d ( b) o f th e A c t o f 1 9 6 3 , f o r th e

"c h a n c e s in th e g a m e are not e q u a l ly fa v o u r a b le to a l l th e p la y e rs " ( o f w h o m th e b a n k is o n e )

(s u b s e c t io n ( 1 ) ( o ) ) , and th e " g a m in g is so c o n d u c te d th a t th e ch a n c es th e re in a re n o t e q u a l ly

f a v o u r a b le to a l l th e p la y e rs " (su b se c t io n ( 1 ) ( b) ) . W e h a v e a l l h e a rd o f th e v e r y o ld s o n g " T h e

M a n w h o B r o k e th e B a n k at M o n t e C a r lo ." T h e b a n k c o u ld , o f c o u rs e , h a v e a v e r y b ad ru n o f

lu c k d u r in g o n e e v e n in g an d lose h e a v i ly . I t c o u ld p erh a p s h a v e a v e r y b ad ru n o f lu c k f o r d ay s

a n d e v e n f o r w e e k s , b u t m o n th in and m o n th o u t , it is b o u n d to w in . T h is , a m o n g s t o th e r

• re a s o n s , is w h y th e house w h ic h h o ld s th e b a n k m o n th in and m o n th o u t is b o u n d to be m o re

f a v o u r a b ly p la c e d th a n any p la y e r w h o m a y h o ld it s p o ra d ic a l ly f o r c o m p a r a t iv e ly s h o rt p e r io d s

o f t im e .

In K w saal Casino Ltd. v. Crickitt15 w h ic h w a s d e c id e d in th e D iv is io n a l C o u r t o n M a r c h 2 3 ,

1 9 6 6 , th e ju s t ic e s h ad h e ld tha t fo r th e hou se to h o ld th e b a n k c o n tra v e n e d th e la w . T h e p o in t

ta k e n b y th e p ro s e c u tio n , w h ic h to m y m in d w a s m a n i fe s t ly a g o o d p o in t , w a s th a t w h o e v e r h e ld

th e b a n k w a s e x h y p o th e s i a p la y e r and a c c o r d in g ly th e g a m e c o u ld n o t be e q u a l ly fa v o u r a b le to

a ll p la y e rs and w a s th e re fo re i l le g a l . I t w o u ld , th e re fo r e , m a k e n o d i f f e r e n c e th a t th e h o u se w e n t

th ro u g h th e m o t io n s o f o f fe r in g th e b a n k to th e p la y e rs an d th a t v e r y o c c a s io n a l ly th e o f fe r w a s

a c c ep ted fo r s h o rt p e r io d s o f t im e . T h e d e fe n c e h ad a rg u e d th a t as th e b a n k w a s o f fe re d at

re g u la r in te rv a ls to a l l th e p la y e rs , th e chan ces w 'ere e q u a l f o r a l l . T h e ju s t ic e s c o n v ic te d .

In c id e n ta l ly , th e y a ls o h e ld th a t as th e re m u s t be v e r y m a n y p la y e rs w h o c o u ld n o t a f fo rd to ta k e

th e b a n k , th e o f fe r , th e re fo re , w a s in a n y e v e n t n e ith e r g e n u in e n o r re a l is t ic . T h e D iv is io n a l

C o u n i?u p h e ld th e c o n v ic t io n and c o n c lu d e d th a t th e re w a s a m p le e v id e n c e to su p p o rt th e f in d in g

th a t the o f fe r o f th e b an k w as

15 [ 1 9 6 6 ] 1 W . L . R . 960.

© A n extract from a JU S T IS da tabase

11 9 6 8 1 90 7

2 W .L .R . R eg. v. C o m m is s io n e r o f Police o f the M e tro p o lis , E x S A L M O N

p a r te B la c k b u rn (C .A . ) L .J .

n e i th e r g e n u in e n o r re a lis t ic . I t is p e rh a p s a p ity , i f th is w a s re g a rd e d as a test case, th a t th e

p ro s e c u tio n w e r e n o t a d v is e d to c a ll e v id e n c e , w h ic h c o u ld e a s ily h a v e b e e n s u p p lie d b y a n y

a c tu a ry o r a n y o n e c o n v e rs a n t w i th th e g a m e , th a t w h a te v e r th e m e a n s o f th e p la y e rs o r h o w e v e r

th e i r l i a b i l i t y m ig h t b e l im ite d , it w o u ld b e q u ite im p o s s ib le to o f f e r th e b a n k o n a n y c o n c e iv a b le

te rm s w h ic h c o u ld p o s s ib ly resu lt in th e g a m in g b e in g so c o n d u c te d th a t th e c h an ces th e re in

w o u ld b e " e q u a l ly fa v o u r a b le to a l l th e p la y e rs ." T h is does n o t d ep e n d on q u e s tio n s o f fa c t o r

d e g re e o r th e c irc u m s ta n c e s o f a n y p a r t ic u la r case. I t is s o m e th in g w h ic h is in h e re n t ly im p o s s ib le

- as th e H o u s e o f L o r d s in Kursaal Casino Lid. v. Crickiti (No. 2 )’6 s u b s e q u e n t ly d e c id e d . T h e

D iv is io n a l C o u r t c e r t i f i e d 17 a p o in t o f la w o f g e n e ra l p u b lic im p o r ta n c e b u t re fu s e d le a v e to

a p p e a l to th e H o u s e o f L o rd s .

O n A p r i l 2 2 , 1 9 6 6 , a f te r th e t im e f o r a p p ly in g fo r le a v e to a p p e a l to th e H o u s e o f L o r d s h ad

e x p ir e d , th e th e n ass is tant c o m m is s io n e r issued th e fo l lo w in g w r i t te n c o n f id e n t ia l in s tru c tio n :

" F o r th e t im e b e in g a l l a p p lic a t io n s f o r a u th o r ity f o r an in s id e o b s e rv a t io n in l ic e n s e d o r

re g is te re d c lu b s f o r th e p urpo ses o f d e te c t in g g a m in g a re to be s u b m it te d to A . I . b ra n c h f o r

m y c o v e r in g a p p ro v a l ."

A c c o r d in g to th e a f f id a v i t o f M r . B e a rm a n , th e assistant s e c re ta ry o f th e A . I . b ra n c h , th e th e n

c o m m is s io n e r

"c o n s id e re d th a t , in v ie w o f th e u n c e r ta in ty o f th e la w , th e e x p e n s e a n d m a n p o w e r in v o lv e d

in k e e p in g g a m in g o b s e rv a t io n s in such c lub s w e re not ju s t i f ie d un less th e re w e r e c o m p la in ts

o f c h e a t in g o r reason to suppose th a t a p a r t ic u la r c lu b had b e c o m e a h a u n t o f c r im in a ls .”

T h is . J th in k , can o n ly m e a n tha t, save in th e c irc u m s tan c e s p o s tu la te d , n o steps w e re to be

ta k e n to b r in g a n y p ro s e c u tio n in respect o f ro u le tte o r o th e r g a m e s in w h ic h th e b a n k h e ld an

a d v a n ta g e : th a t is to say , th e re shou ld be no p ro se c u tio n in resp ect o f g a m e s c o n tra v e n in g

sec tio n 3 2 as such.

T h e a f f id a v i t c o n t in u e s as fo l lo w s :

" A t the t im e w h e n th is d ec is io n w a s ta k e n , th e Kjirsaalcase]~ w a s b e l ie v e d to b e g o in g to

th e H o u s e o f L o r d s on th e p o in t c e r t i f ie d b y th e D iv is io n a l C o u r t . H a d th is b ee n d e c id e d in

fa v o u r o f th e p ro s e c u tio n , it w a s fe l t tha t ro u le tte and o th e r g a m e s w h e r e th e b a n k h ad an

a d v a n ta g e w o u ld h a v e been c le a r ly i l le g a l and w o u ld th e re fo re h a v e c o m e to an end in a n y

re p u ta b le c lu b " - m a r k these w o rd s - " o r h av e been v e ry easy to d e te c t a n d p ro se c u te ."

T h is can o n ly m e a n th a t i f th e d ec is io n o f th e D iv is io n a l C o u r t s to o d , th e re w o u ld h a v e b een

n o d i f f i c u l t y in th e w a y o f p ro se c u tio n , but th a t th e la w w as th o u g h t to b e s t i l l u n c e r ta in b ecau se

th e Kursaal (No. Ij c a s e 17 w a s b e lie v e d to be g o in g to th e H o u s e o f L o r d s a n d th e re fo r e n o step

s h o u ld be ta k e n m e a n w h i le . N o -o n e has o r c o u ld possib ly im p u g n th e g o o d fa i th o f th e

16 [ 1 9 6 8 ] 1 W .L .R . 53.17 [ 1 9 6 6 ] 1 W . L . R . 96 0 .

An extract f rom a JU STIS da tabase

|1968 |2 W.L.R. Reg. v. Commissioner o f Police of the Metropolis, Ex


908SALMON

L.J.

ass is tant c o m m is s io n e r . I t is, h o w e v e r , a v e r y g re a t p i t y th a t he a p p a re n t ly d id n o t e v e n ta k e th e

t ro u b le to d is c o v e r th a t th e t im e fo r a s k in g th e H o u s e o f L o rd s f o r le a v e to a p p e a l (w h ic h h ad

b ee n re fu s e d b y th e D iv is io n a l C o u r t ) h ad a lre a d y e x p ire d b y th e d a te o f h is c o n f id e n t ia l

in s tru c t io n o f A p r i l 2 2 , 1 9 6 6 , an d th a t th e re fo re th e re w a s n o p o s s ib i l i t y o f a n y a p p e a l to th e

H o u s e o f L o rd s . E v e r ) ' m o n th w h ic h w e n t b y ad d ed tens o r p e rh a p s h u n d re d s o f th o u s a n d s o f

p o u n d s to th e p ro f i ts m a d e f r o m i l le g a l g a m in g , a n d , as th e S e c re ta ry o f s ta te f o r H o m e A f fa i r s

sa id o n S e p te m b e r 13 , 1 9 6 6 , th e c o n n e c t io n b e tw e e n g a m in g c lu b s a n d o rg a n is e d c r im e s c o n t in u e d to g r o w .

In th e m e a n t im e th e K u rs a a l cas in o d e v is e d a s c h e m e u n d e r w h ic h th e b a n k w a s o f fe r e d to th e

p la y e rs in c irc u m s ta n c e s sup posed to en su re th a t th e y c o u ld l im i t th e ir l i a b i l i t y to a n y su m th e y

l ik e d to n a m e . T h e K u rs a a l c o n t in u e d p la y in g ro u le t te u n d e r th is n e w s c h e m e . T h e y w e r e

p ro s e c u te d a g a in b y th e v ig i la n t S u p e r in te n d e n t C r ic k i t t o f S o u th e n d a n d d u ly c o n v ic te d on

D e c e m b e r 2 , 1 9 6 6 : th a t is to say , m o r e th a n seven m o n th s a f te r th e c o n f id e n t ia l in s tru c tio n .

D u r in g th is p e r io d n o th in g h ad been d o n e to e n fo rc e th e la w in L o n d o n , a p p a r e n t ly b ecau se o f

th e b e l i e f th a t th e re w a s to be an a p p e a l to th e H o u s e o f L o r d s in Kursaal Casino Lid. v.

Crickin (No. J).11 T h is is th e a p p e a l th a t n e v e r w a s a n d w h ic h th e s lig h te s t e n q u ir y w o u ld h a v e

re v e a le d n e v e r c o u ld h a v e b een at a n y t im e a f te r A p r i l 2 0 , 1 9 6 6 .

T h e in a c t iv i t y a f t e r th e c o n v ic t io n in Kursaal Casino Ltd. v. Crickitt (No. 2 )IS on D e c e m b e r 2 ,

• 1 9 6 6 , is s o u g h t to b e e x cu sed in M r . B e a r m a n ’s a f f id a v i t b y th e fa c t th a t i t w a s k n o w n th a t th a t

c o n v ic t io n w a s to b e tes ted in th e D iv is io n a l C o u r t .18 N o steps, h o w e v e r , w e r e ta k e n (s in c e no

in s id e o b s e rv a t io n s w e r e k e p t ) to see w h e th e r th e L o n d o n g a m in g hou ses o f fe re d th e b a n k to th e

p la y e rs u n d e r c o n d it io n s w h ic h a l lo w e d th e p la y e rs to l im i t th e ir l ia b i l i t y . T h e r e w a s thu s n o

reason to suppose th a t th e L o n d o n g a m in g houses had e v e n th e d e fe n c e open to th e m w h ic h h ad

fa i le d b e fo re th e ju s t ic e s in Kursaal (No. 2) . 18

A n o th e r seven m o n th s w e n t b y b e fo re Kursaal (No. 2 )]i w a s d e c id e d in th e D iv is io n a l C o u r t

on J u ly 10, 1 9 6 7 , in f a v o u r o f th e d e fe n c e . A p p a re n t ly s t i l l no steps w e r e ta k e n to as c erta in on

w h a t te rm s , i f a n y , th e b a n k w a s b e in g o f fe re d to p la y e rs in L o n d o n a n d s t i l l th e g a m b l in g

e m p ire s w e re le f t u n d is tu rb e d . T h e n on D e c e m b e r 19. 1 9 6 7 , th e d e c is io n o f th e D iv is io n a l C o u r t

in Kursaal (No. 2 j ]B w a s re v e rs e d b y th e H o u s e o f L o r d s .19W e h a v e b een to ld th a t th a t d ec is io n

and its im p l ic a t io n s a re b e in g c a re fu l ly s tu d ied . T h e s tu d y s ho u ld n o t ta k e lo n g . L o r d Pearson 's

s p e e c h .:o in w h ic h a l l th e o th e r la w lo rds c o n c u rre d , m a d e th e la w p e l lu c id ly c le a r . In no

c irc u m s ta n c e s can ro u le t te be leg a l w h e n p la y e d w i th a z e ro a n d w h e n th e o dd s a re 3 5 to 1 o r less a g a in s t a n y one n u m b e r tu rn in g up. T h e co rre c t

17 [ 1 9 6 6 ] 1 W .L .R . 960 .18 [ 1 9 6 7 ] 1 W .L .R . 1227.19 [ 1 9 6 8 ] 1 W .L .R . 53.2 0 Ibid. 61.

© An extract from a JU S T IS da tabase

47

11968] 9092 W .L .R . R eg. v. C o m m is s io n e r o f Po lice o f the M e tro p o lis , E x S A L M O N

p a r te B la c k b u rn (C .A . ) L .J .

o d d s a re , o f c o u rs e , 3 6 to 1, s ince in c lu d in g z e r o th e re a re 3 7 n u m b e rs on th e ro u le t te w h e e l .

A c c o r d in g to th e e v id e n c e b e fo re th is c o u r t , h o w e v e r , m o s t o f th e g a m in g houses in L o n d o n ,

in d ire c t d e f ia n c e o f th e la w as la id d o w n b y th e H o u s e o f L o rd s , a re s t i l l p la y in g ro u le t te ,

u n m o le s te d , in e x a c t ly th e s a m e w a y (s a v e f o r o n e im m a te r ia l v a r ia t io n to w h ic h I w i l l r e fe r ) as

th e y w e r e d o in g p r io r to D e c e m b e r 19 last. T h e v a r ia t io n is as fo l lo w s : I f th e n u m b e r b a c k e d b y

a p la y e r fo r , say , o n e c h ip tu rn s up , h e re c e iv e s 3 5 o rd in a ry c h ip s a n d o n e spe c ia l c h ip o f a

d i f f e r e n t c o lo u r . H e is n o t a l lo w e d to p la y w i th th is c h ip o r to e x c h a n g e it fo r an o r d in a r y c h ip .

T h e n o r m a l p ra c t ic e is f o r th e p la y e rs to toss th e spec ia l C h ip s b a c k to th e c ro u p ie r . C le a r ly th e

p la y e rs a re u n d e r n o i l lu s io n . T h e y re a lis e th a t th e s e spec ia l ch ip s a re b u t a h o l lo w s h a m d e v is e d

to d e c e iv e th e e x c e p t io n a l ly g u l l ib le in to th in k in g th a t th e o dds b e in g p a id o u t are 3 6 to 1 w h e n

in r e a l i t y th e y a re 3 5 to 1. I f a n y o n e w i th a s p e c ia l c h ip chooses (a n d v e r y f e w o f th e m d o ) to

ta k e it to th e cash d esk to be cashed , i t is d u ly cashed b u t th e p la y e r c o n c e rn e d has to p a y a

fe e . f o r e x a m p le , o f £ 1 0 in th e G o ld e n N u g g e t C a s in o C lu b a n d £ 5 0 in th e V ic t o r ia S p o r t in g

C lu b . I t m a y be th a t g a m b le rs a re re lu c ta n t to cash th e ch ips b ecau se th e y d o n o t l ik e p a y in g th e

f e e o r b ecau se , r ig h t ly o r w r o n g ly , th e y fe a r th e y m a y be b arre d - a n d m o s t g a m b le rs w o u ld

ra th e r s a c r if ic e a s had e o f odd s th a n lose th e c h a n c e o f g a m b lin g .

H o w e v e r th a t m a y b e, i t is o b v io u s th a t in re a lity ' the o dds on th e o v e r w h e lm in g n u m b e r o f

bets re m a in a t th e ra te o f 3 5 to 1 a g a in s t a s in g le n u m b e r tu r n in g up . W h a t o th e rw is e c o u ld be

th e o b je c t o f h a v in g a d if f e r e n t c o lo u re d c h ip to m a k e th e odds up to 3 6 to 1 a n d c h a r g in g a fe e

f o r c a s h in g it? A t m o s t i t a m o u n ts to g iv in g a p la y e r an o p t io n e i th e r to p a y a fe e o r to p la y in

a g a m e in w h ic h th e c h an ces a re n o t e q u a l ly fa v o u r a b le to a l l p la y e rs . T h e r e is c e r ta in ly n o th in g

h ere f o r a tes t case. T h is c o u ld o n ly se rv e to g iv e th e g a m in g h ouses a fu r th e r b re a th in g space

f o r a n o th e r lo n g s p e ll , a t th e end o f w h ic h n o d o u b t an e q u a l ly t ra n s p a re n t ruse w o u ld be

d e v is e d . W h a t is n o w u rg e n t ly n ee d e d is th a t e n e rg e t ic steps s h o u ld im m e d ia te ly b e ta k e n to

p ro s e c u te a s u b s ta n tia l n u m b e r o f m a jo r L o n d o n g a m in g houses in w h ic h th e la w is b e in g d e f ie d .

I t m a y be th a t e v e n w h e n v e r y h e a v y f in e s a re im p o s e d , th e y w i l l be in e f fe c t iv e , in w h ic h e v e n t

th e A t to r n e y -G e n e r a l w o u ld n o d o u b t c o n s id e r th e a d v is a b i l i ty o f b r in g in g re la to r a c tio n s to

re s tra in th e p resen t abuses b y in ju n c t io n .

M r . B la c k b u m has a b a n d o n e d th e f irs t t w o p arts o f his a p p l ic a t io n : o n ly th e th ird p a r t re m a in s

w h ic h asks fo r an o rd e r o f m a n d a m u s r e q u ir in g th e c o m m is s io n e r to re v e rs e th e p o l ic y d e c is io n

th a t th e t im e o f p o l ic e o f f ic e r s w i l l n o t be spent in e n fo rc in g th e p ro v is io n s o f th e A c t o f 1 9 6 3 .

M r . V io r s le y . on b e h a l f o f th e c o m m is s io n e r , has g iv e n an u n d e r ta k in g to th is c o u rt th a t the

c o n f id e n t ia l in s tru c tio n o f A p r i l 2 2 , 1 9 6 6 , w i l l be

<£■ A n extract from a JU S TIS database

|1968]2 W.L.R. Reg. v. Commissioner o f Police o f the Metropolis, Ex


910SALM ON

L.J.

im m e d ia t e ly w i th d r a w n and th e w h o le m a t te r re fe r re d to th e D i r e c t o r o f P u b l ic P ro s e c u tio n s .

M o r e o v e r , he has g iv e n an assurance th a t s in c e D e c e m b e r 19 las t, th e p o l ic y d e c is io n re fe r re d to

in M r . B e a rm a n 's a f f id a v i t has b een re v e rs e d an d th a t o b s e rv a t io n has b ee n k e p t on m a n y o f th e

p r in c ip a l g a m in g houses in L o n d o n , in c lu d in g those re fe r re d to in th e a f f id a v i ts f i le d b y M r .

B la c k b u r n . H a d it n o t b een fo r th is u n d e r ta k in g and assu ran ce , I s h o u ld , I th in k , h a v e b een in

f a v o u r o f m a k in g an o rd e r .

I a m n o t im p re s s e d b y th e a rg u m e n t th a t M r . B la c k b u rn has an e q u a l ly e f fe c t iv e a n d e q u a l ly

c o n v e n ie n t r e m e d y o p en to h im and th a t, th e re fo r e , th e o rd e r o f m a n d a m u s s h o u ld in a n y e v e n t

b e re fu s e d in th e cou rt's d is c re t io n . I t seem s to m e fa n ta s t ic a l ly u n re a lis t ic f o r th e p o lic e to

suggest, as th e y h av e d o n e , th a t th e ir p o l ic y d e c is io n w a s u n im p o r ta n t b ecau se M r . B la c k b u r n

w a s fre e to s tart p r iv a te p ro se c u tio n s o f h is o w n and f ig h t th e g a m b l in g e m p ire s , p o s s ib ly up to

th e H o u s e o f L o r d s , s in g le -h a n d e d . N o r , as a t p resent a d v is e d , d o I a c c e p t th e a rg u m e n t th a t th is

is a " c r im in a l cause o r m a t te r" and that th e re fo r e , b y reaso n o f th e S u p r e m e C o u r t o f J u d ic a tu re

( C o n s o l id a t io n ) A c t , 1 9 2 5 , sec tio n 31 ( 1 ) (a), n o a p p e a l l ies to th is c o u r t f r o m th e D iv is io n a l

Court. N o d o u b t th e w o rd s " c r im in a l cau se o r m a t te r " m u s t be g iv e n a v e r y w id e c o n s tru c t io n ,

b u t I a m n o t c o n v in c e d th a t th e y re la te to p ro c e e d in g s in w h ic h n e ith e r p a r ty is at r is k o f b e in g

p ro se c u te d as a re s u lt o f th e o rd e r s ou gh t o r m a d e (se e Amand v. Howe Secretary21. I w o u ld

p r e fe r to k e e p th a t p o in t o p e n as it does n o t d ir e c t ly a rise f o r d e c is io n . T h e o n ly d o u b t I s ho u ld

• h a v e h ad w 'ou ld h a v e been as to w h e th e r M r . B la c k b u rn h ad a s u f f ic ie n t p e rs o n a l in te re s t in

o rd e r to o b ta in an o rd e r o f m a n d a m u s . A s it is, n o o rd e r is necessary' and I a g re e th a t,

a c c o r d in g ly , n o n e s h o u ld be m a d e .

B e fo r e p a r t in g w-ith th e case, I w o u ld , how -ever, l ik e to say th a t I e n t i r e ly ag re e w i th th e

o b s e rv a t io n s m a d e b y L o r d D e n n in g M . R . in re g a rd to Mills v. Mackinnon.:1 T h a t w'as a d e c is io n

w h ic h res ted on s o m e v e r y s p ec ia l fac ts fo u n d in th a t case. S h o u ld th e re be a n o th e r p ro se c u tio n

in re la t io n to c h e m in -d e - fe r and th e p ro s e c u tio n w-ere to c a ll a n u m b e r o f re s p e c ta b le p e o p le w h o

th o ro u g h ly u n d ers to o d th e g a m e , 1 s ho u ld be surp rised i f th e d e c is io n w e re th e sam e.

E D M U N D D A V I E S L .J . l t w o u ld be d i f f ic u l t to e x a g g e ra te th e im p o r ta n c e o f these

p ro c e e d in g s . I f th e re a re g ro u n ds fo r s u s p e c tin g th a t a g ra v e s oc ia l e v i l is b e in g a l lo w e d to

f lo u r is h u n c h e c k e d b ecau se o f a set p o l ic y o f in a c t io n d e c id e d up o n b y a p u s i l la n im o u s p o lic e

fo r c e , p u b l ic c o n f id e n c e m u s t in e v i ta b ly be g r a v e ly u n d e rm in e d . W e h a v e ra n g e d fa r and w id e in

th is case - both c h r o n o lo g ic a l ly ( f r o m A n g lo -S a x o n t im e s to th e p re s e n t d a v ) an d g e o g r a p h ic a l ly

( f r o m L as V e g a s to th e E d g w a r e R o a d ) - b u t w e

21 [ 1 9 4 3 ] A . C . 147.22 [ 1 9 6 4 ] 2 Q .B . 96.

<E A n extract from a JUSTIS database

|1968] 9112 W . L . R . R eg. v. C o m m is s io n e r o f Police o f the M e tro p o lis , E x E D M U N D

p a r te B la c k b u rn (C .A . ) D A V IE S L .J .

h a v e n o t t r a v e l le d an in ch b e y o n d th a t m a d e n ec e s s a ry b y th e u rg e n c y a n d im p o r ta n c e o f th e

issues ra is e d .

I t is, to say th e least, s in g u la r ly u n fo r tu n a te th a t , th e c o n v ic t io n in Kursaal Casino Ltd. v.

Crickitt2:' h a v in g b een u p h e ld b y th e D iv is io n a l C o u r t on M a r c h 2 3 , 1 9 6 6 , and th e t im e f o r

a p p ly in g to th e H o u s e o f L o r d s f o r le a v e to a p p e a l h a v in g e x p ir e d , th e ass is tan t c o m m is s io n e r

issued on A p r i l 2 2 th e " C o n f id e n t ia l In s t ru c t io n " re g a rd in g " G a m in g in re g is te re d o r l ic e n s e d

c iu b s ," to w h ic h L o r d D e n n in g M . R . and S a lm o n L .J . h av e a lre a d y re fe r r e d . W h a t p ro m p te d it

has b ee n o n e o f th e d is tu rb in g q u e s tio n s ra is e d b y these p ro c e e d in g s . T h is c o u r t w a s g iv e n n o

a n s w e r to th a t q u e s t io n d ir e c t ly e m a n a t in g f r o m its a u th o r , th e ass is tan t c o m m is s io n e r , b u t it

a p p e a rs f r o m th e a f f id a v i t o f M r . B e a rm a n o f th e a d m in is t ra t io n d e p a r tm e n t o f N e w S c o tla n d

Y a r d th a t th e ass is tan t c o m m is s io n e r

" .. . c o n s id e re d th a t , in v i e w o f th e u n c e r ta in ty o f th e la w , th e e x p e n se an d m a n p o w e r

in v o lv e d in k e e p in g g a m in g o b s e rv a t io n s in such c lub s w e re n o t ju s t i f ie d un less th e re w e r e

c o m p la in ts o f c h e a t in g o r reason to sup p o se th a t a p a r t ic u la r c lu b h ad b e c o m e a h a u n t o f

c r im in a ls ."

In o th e r w o r d s , n o steps w e r e to be ta k e n to in v e s t ig a te w h e th e r b re a c h e s o f th e B e t t in g ,

G a m in g a n d L o t te r ie s A c t , 1 9 6 3 , as such w e r e b e in g p e rp e tra te d , and it is c o n c e d e d b y M r .

W o r s le y f o r th e re s p o n d e n t th a t in c o n s e q u e n c e o b s e rv a t io n in s o m e o f th e b ig g e s t g a m b l in g

c lub s in th e W e s t E n d w a s im m e d ia te ly s to p p e d . S m a l l w o n d e r , th e n , th a t on J a n u a ry 2 last " T h e

T im e s " n e w s p a p e r b o ld ly asserted th a t ,

" I t is n o w c le a r th a t th e A c t has fa i le d to a c h ie v e its p u rp o se n o t so m u c h because it c o u ld

n o t be e n fo rc e d as b ecau se the p o l ic e fa i le d to d o so."

T h e t im in g o f th is d ir e c t iv e w a s as m a la d r o i t as th e reaso ns g iv e n to th is c o u rt f o r its

p u b l ic a t io n . I t p re v a ile d f o r n e a r ly t w o y e a rs a f te r Kitrsaal Casino Ltd. v. Crickitt,23 n o tw ith s ta n d in g th a t M r . B e a rm a n in h is a f f id a v i t s tated in e f fe c t th a t , as lo n g as th a t d e c is io n

r e m a in e d u n d is tu rb e d , it re n d e re d " ro u le tte a n d o th e r g am e s w h e r e th e b a n k h ad th e a d v a n ta g e ...

c l e a r l y i l le g a l ." A s lo n g as th e d ir e c t iv e re m a in e d o p e ra t iv e , i t has u n d e rs ta n d a b ly c rea ted

p e r tu rb a t io n in th e m in d s o f m a n y , an d th e fa c t th a t it a p p a re n t ly c o n t in u e d in fo rc e e v e n a f te r

Kursaal Casino Ltd. v. Crickitt (No. 2)24 w a s d e c id e d on D e c e m b e r 19 las t, s e rv e d to p erp e tu a te

th a t a n x ie ty . In d e e d , it w a s o n ly on th e p e n u lt im a te d a y o f th is h e a r in g th a t M r . W o r s le y , in

a n s w e r to a d ire c t q u e s tio n b y a m e m b e r o f th e c o u rt , in t im a te d th a t o ra l in s tru c tio n s h a v e b een

spread a ro u n d th a t th e d ir e c t iv e n o lo n g e r re m a in s o p e ra t iv e .

B u t a m o re s a t is fa c to ry stage w a s re a c h e d w h e n , in th e c o n c lu d in g stages o f h is address , M r .

W o r s le y u n d e r to o k on b e h a l f o f th e re s p o n d e n t th a t th e c r it ic is e d d ir e c t iv e w i l l be e x p re s s ly

2 3 [ 1 9 6 6 ] 1 W .L .R . 960 .2 4 [ 1 9 6 8 ] 1 W .L .R . 53.

An extract f rom a JU S T IS database

|1968]2 W.L.R. Reg. v. Commissioner o f Police o f the Metropolis, Ex


91 2

E D M U N D D A V IE S L .J .

and im m e d ia t e ly w i th d r a w n and re p la c e d b y a n e w d ir e c t iv e e m p h a s is in g th e in te n t io n o f th e

M e t r o p o l i t a n P o l ic e to e n fo rc e th e la w ag a in s t " ro u le tte w i th z e ro and a l l o th e r fo r m s o f g a m in g

w h e r e th e b a n k has an in h e re n t a d v a n ta g e o v e r p la y e rs . . . . ” T h e m a in o b je c t s o u gh t to be

a tta in e d b y th e a p p l ic a n t in these p ro c e e d in g s w a s th a t b y m a n d a m u s th e re s p o n d e n t be re q u ire d

"to re v e rs e o r p ro c u re th e re v e rs e o f th e p o l ic y d e c is io n ... th a t th e t im e o f p o l ic e o f f ic e rs w i l l

n o t be spen t on e n fo r c in g th e p ro v is io n s o f th e A c t o f 1 9 6 3 .” T h e u n d e r ta k in g n o w g iv e n to th is

c o u r t has f o r a l l p ra c t ic a l p urpo ses secured f o r th e a p p l ic a n t th e r e l i e f he s o u g h t an d a c c o r d in g ly

n o g ro u n d s r e m a in in resp ect o f w h ic h it w o u ld a n y lo n g e r be p ro p e r to c o n s id e r g ra n t in g

m a n d a m u s .

T h a t is th e p ra c t ic a l o u tc o m e o f these p ro c e e d in g s , a n d f r o m th e p u b l ic s ta n d p o in t a v e r y

u s e fu l o u tc o m e it is. B u t h o w stands th e la w ? L o r d D e n n in g M . R . and S a lm o n L .J . h av e a lr e a d y

d e a l t w i th it in e x te n s o , an d I p ro p o se to d ea l q u ite b r ie f ly w i th b u t s o m e o f th e p o in ts ra is e d b y

th e re s p o n d e n t.

1 d e a l f i r s t w i t h ju r is d ic t io n . I t is u rg ed th a t these p ro c e e d in g s re la te t o "a c r im in a l cause o r

m a tte r " a n d th a t a c c o r d in g ly an a p p e a l f r o m th e D iv is io n a l C o u r t l ies d ir e c t ly to th e H o u s e o f

L o r d s and n o t to th is c o u r t - see s e c tio n 31 ( 1 ) (a) o f th e S u p r e m e C o u r t o f J u d ic a tu re

(C o n s o l id a t io n ) A c t , 1 9 2 5 . I n eed n o t a g a in go th ro u g h th e lo n g l in e o f cases re l ie d u p o n in th is

c o n n e c t io n b y th e re s p o n d e n t, b e g in n in g w i th Ex parte Alice Woodhall.75 In m y ju d g m e n t th e y

• h a v e n o b e a r in g u p o n th e q u ite g en e ra l a p p l ic a t io n n o w m a d e th a t th e c o m m is s io n e r be

c o m p e l le d to re v e rs e a p o l ic y d ir e c t iv e re g a rd in g th e e n fo rc in g o f a s ta tu te . S u ch an a p p l ic a t io n

has n o re fe re n c e to a n y p a r t ic u la r c r im in a l cause o r m a t te r , and is n o t e v e n a re m o te step in

re la t io n to a c r im in a l cause o r m a tte r , b u t is d es ig n e d s im p ly an d s o le ly to e n s u re th a t th e p o l ic e

d o n o t a b d ic a te , in c o n s e q u e n c e o f a p o l ic y d e c is io n , th e ir fu n c t io n s as la w e n fo rc e m e n t o f f ic e r s .

1 th e re fo r e a g re e w i th m y lo rd s in h o ld in g th a t th is c o u rt has ju r is d ic t io n to h e a r and d e te rm in e

th e p re s e n t a p p e a l. B u t it is n ecessary to add th a t I a m p ers u a d ed so to h o ld b y reason o f th e

a b a n d o n m e n t o f a l l b u t th e last p o r t io n o f th e m o t io n , fo r th e e a r l ie r p arts (a n d p a r t ic u la r ly th a t

w h ic h re la te d to th e p ro s e c u tio n o f a s p e c if ic , n a m e d c lu b ) se e m s to m e t r u ly o pen t o the

o b je c t io n as to ju r is d ic t io n ra ised b y th e re s p o n d e n t. In th is c o n te x t . I a m n o t fo r th e p resen t

p re p a re d , w i t h re s p e c t , to a d o p t the v ie w e xpressed b y F le tc h e r -M o u l to n L .J . in Rex v. Governor o f Brixton Prison , Ex parts Savorkar76 th a t -

" i f any p o r t io n o f an a p p lic a t io n o r o rd e r in v o lv e s th e c o n s id e ra t io n o f a c r im in a l cause o r

m a tte r , it a rises out o f it. and in such a case th is c o u rt is n o t c o m p e te n t to e n te rta in ana p p e a l .”

2 5 ( 1 8 8 8 ) 2 0 Q . B . D . 83 2 , C .A .2 6 [ 1 9 1 0 ] 2 K .B . 1 056 . 106 5 , C.A.

© A n extrac t from a JU S T IS da tabase

11968] 9132 W .L .R . R eg. v. C o m m is s io n e r o f Po lice o f the M e tro p o lis , E x E D M U N D

p a r te B la c k b u rn (C .A . ) D A V I E S L .J .

B e th a t as it m a y , n o th in g th e re said c a n , in m y ju d g m e n t , a p p ly to a case (s u c h as th e

p re s e n t) w h e r e th e a p p l ic a n t f o r r e l i e f a b a n d o n s tho se parts o f h is m o t io n w h ic h o f fe n d , o r m a y

o f fe n d , ag a in s t th e ru le , and I see n o re a s o n w h y th is c o u rt s h o u ld th e re a f te r be p re v e n te d f r o m

a d ju d ic a t in g u po n th e v a l id i t y o f th a t w h ic h re m a in s .

So fa r , so g o o d , f r o m th e a p p l ic a n t ’s p o in t o f v ie w . B u t e v e n so it is said th a t he c o u ld n o t in

a n y e v e n t h a v e succeeded in th e s e p ro c e e d in g s . In th is c o n te x t M r . W o r s le y has add ressed to th e

c o u r t an e la b o ra te and le a rn e d a rg u m e n t in s u p p o rt o f th e b a ld and s ta r t l in g p ro p o s it io n th a t th e

l a w e n fo rc e m e n t o f f ic e r s o f th is c o u n tr y o w e n o d u ty to th e p u b lic to e n fo rc e th e la w . C a r r ie d to

its lo g ic a l l im i t , such a s u b m is s io n w o u ld m e a n th a t , h o w e v e r b ra z e n th e fa i lu r e o f th e p o l ic e to

e n fo rc e th e la w , th e p u b l ic w o u ld b e w h o l ly w i th o u t a r e m e d y an d w o u ld s im p ly h a v e to a w a i t

s o m e p ra c t ic a l e x p re ss io n o f th e cou rt's d is p le a s u re . In p a r t ic u la r , i t w o u ld f o l lo w th a t th e

c o m m is s io n e r w o u ld be u n d e r n o d u ty to p ro s e c u te a n y o n e fo r b re a c h e s o f th e G a m in g A c ts , n o

m a t te r h o w f la g r a n t ly a n d p e rs is te n t ly t h e y w e r e d e f ie d . C a n th a t b e r ig h t? Is o u r m u c h -v a u n te d

le g a l s ys tem in t ru th so a n a e m ic th a t , in th e last re s o rt , it w o u ld be p o w e r le s s a g a in s t th o s e w h o ,

h a v in g b ee n a p p o in te d to e n fo rc e it , m e r e ly c o c k e d a sno o k a t it? T h e v e r y id e a is as re p u g n a n t

as it is s ta r t l in g , and I c o n s id e r i t r e g re t ta b le th a t i t w a s e v e r a d v a n c e d . H o w i l l it a f fo rd s w i th

th e s e v en tee n th c e n tu ry assertio n o f T h o m a s F u l le r th a t , " B e y o u n e v e r so h ig h , th e l a w is a b o v e

y o u ." T h e a p p l ic a n t is r ig h t in h is assertio n th a t its e f fe c t w-ould b e to p la c e th e p o lic e a b o v e th e

la w . 1 s ho u ld in d e e d re g re t to h a v e to assen t to th e p ro p o s it io n th u s a d v a n c e d on b e h a l f o f th e

re s p o n d e n t, a nd , f o r th e reasons a lre a d y g iv e n b y m y lords, I do n o t re g a rd it as w e l l - f o u n d e d .

O n th e c o n tra ry . 1 ag re e w i th th e m in h o ld in g th a t th e law- e n fo rc e m e n t o f f ic e r s o f th is c o u n t r y

c e r ta in ly o w e a le g a l d u ty to th e p u b l ic to p e r fo rm those fu n c tio n s w h ic h a re th e ra iso n d 'e tre o f

t h e i r e x is te n c e . H o w and b y w h o m th a t d u ty can b e e n fo rc e d is a n o th e r m a t te r , and it m a y be

tha t a p r iv a te c i t iz e n , such as th e a p p l ic a n t , h a v in g no s p ec ia l o r p e c u l ia r in te re s t in th e d u e

d is c h a rg e o f th e d u ty u n d e r c o n s id e ra t io n , has h im s e l f no leg a l r ig h t to e n fo rc e it. B u t th a t is

w id e ly d if fe re n t f r o m h o ld in g th a t no d u ty ex is ts , e n fo rc e a b le e i th e r b y a r e la to r a c tio n o r in

s o m e o th e r m a n n e r w h ic h m a y h e r e a f te r h a v e to be d e te rm in e d .

It w a s fu r th e r u rg ed th a t , a s s u m in g ju r is d ic t io n in th is c o u rt a n d e v e n a s s u m in g th a t th e

re s p o n d e n t is u n d e r th e d u ty w 'h ich th is c o u r t n o w u n a n im o u s ly h o ld s h e d oes o w e , n ev e r th e le s s

th e a p p lic a n t s h o u ld be d e n ie d th e r e l i e f sought in a s m u c h as it is o p en to h im to la y an

in fo rm a t io n o r a p p ly f o r a v o lu n ta r y b i l l o f in d ic tm e n t . T h e la w is, as I b e l ie v e , th a t r e l i e f b y

w a \ o f a p re ro g a t iv e o rd e r w i l l n o t he g ra n te d i f th e re is a v a ila b le a n y

© A n extract f rom a JU STIS da tabase

9

[1968 i2 W.L.R. Reg. v. Commissioner o f Police o f the Metropolis, Ex


9 1 4

E D M U N D

D A V I E S L .J .

o th e r le g a l re m e d y , e q u a l ly c o n v e n ie n t , b e n e f ic ia l a n d a p p ro p r ia te . H a v in g re g a rd to th e c o u rs e

th e s e p ro c e e d in g s h a v e ta k e n , no f in a l c o n s id e ra t io n o f th is s u b m is s io n is c a l le d fo r , a n d I

c o n te n t m y s e l f w i t h th e s im p le o b s e rv a t io n th a t o n ly th e m o s t s a rd o n ic c o u ld re g a rd th e

la u n c h in g o f a p r iv a te p ro s e c u tio n (a p ro ce s s w h ic h , in c id e n ta l ly , is b e c o m in g re g a rd e d w i t h

in c re a s in g d is fa v o u r in th is c o u n tr y ) as b e in g e q u a l ly c o n v e n ie n t , b e n e f ic ia l a n d a p p ro p r ia te as

th e p ro c e d u re in fa c t a d o p te d b y th is a p p e l la n t .

I b eg a n b y s a y in g th a t th e s e a re im p o r ta n t p ro c e e d in g s . T h e y h a v e s e rv e d u s e fu l p u b l ic

p u rp o ses ( a ) in h ig h l ig h t in g th e v e r y re a l a n x ie ty w h ic h m a n y re s p o n s ib le c i t iz e n s m a n i fe s t ly

e n te r ta in as to th e a d e q u a c y o f th e steps h ith e r to ta k e n to e x te r m in a te a s h o c k in g and g r o w in g

c a n c e r in th e b o d y p o l i t ic ; and ( b ) in c la r i f y in g th e d u ty o f th e p o l ic e in re la t io n to la w

e n fo r c e m e n t g e n e ra l ly . A c c o r d in g ly , w h i le , f o r th e reaso n s g iv e n b y m y lo rd s , th e re m u s t b e a

f o r m a l d is m is s a l o f th is a p p e a l, it m a y w e l l b e th a t th e a p p l ic a n t a n d h is s u p p o rte rs w i l l

n e v e r th e le s s fe e l as th e y le a v e th is c o u rt to d a y th a t in tru th th e irs h as b ee n th e v ic to ry .

No order on appeal Order o f Divisional Court as to costs set aside.

S o lic i to rs : Solicitor, Metropolitan Police.

L . N . W .

© A n extract from a JUSTIS da tabase

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