In Beckett v State of NSW the High Court has declared that in an action for malicious
prosecution, the element of the cause of action that requires the criminal
proceedings against the plaintiff to have terminated in their favour is
satisfied where the DPP has exercised the power to direct that there be no
further proceedings.
Despite what the newspapers
triumphantly pronounced, this was not a case about whether or not Beckett was
entitled to sue the State of NSW for malicious prosecution. She did not “win the right” to sue. It dealt with a very narrow issue about the
effect of the DPP’s direction under section 7(2)(b) of the Director of Public Prosecutions Act 1986. Importantly for Beckett, it decided that she
did not need to positively establish that she was innocent of the crimes with
which she had been charged.
The issue arose in this way. Beckett was charged with a number of offences
against her husband. She was committed
to stand trial, a bill of indictment was found and she was arraigned upon
it. She was found guilty of a number of
the charges and sentenced to more than 12 years imprisonment. She appealed unsuccessfully against her
convictions and sentence to the NSW Court of Criminal Appeal. She petitioned the governor for a review of
her conviction, the result of which was that the NSW Court of criminal Appeal
quashed a number of the convictions and ordered a new trial in respect of some
of the counts. The DPP then directed
that there be no further proceedings (it is important to note that is
undoubtedly because by the time the Court of Criminal Appeal had quashed the
convictions and ordered a new trial, the plaintiff had already served the bulk
of her sentence).
The plaintiff then commenced
proceedings in the NSW Supreme Court for malicious prosecution. The State of NSW asserted that the plaintiff
had to establish her innocence of the charges in order to succeed. This was based upon the outcome of the High
Court decision in Davis v
Gell (1924) 35 CLR
275 in which the High Court held that where criminal proceedings are terminated
by the entry of nolle prosequi the
plaintiff is nonetheless required to prove their innocence. A subsequent decision of the High Court in Commonwealth
Life Assurance Society Ltd v Smith (1938) 59 CLR 527 narrowly confined the
holding in Davis. In Smith
the criminal proceedings came to an end by the decision of the Attorney-General
not to file an indictment. The Court
held that the guilt or innocence of the plaintiff is not an issue going to the
cause of action for malicious prosecution.
However, they carved out of this general statement the case of nolle prosequi such as in Davis. The position of criminal proceedings
terminated by nolle prosequi was
rightly to be regarded as anomalous, but it remained binding nonetheless.
The issue that squarely arose in the Supreme Court was whether the
direction by the DPP that there be no further proceedings was equivalent to the
entry of nolle prosequi by the
Attorney-General. The Supreme Court and
the Court of Appeal held that it was, with the consequence that if Davis remained good law, then Beckett
would have to establish her innocence at any trial of her malicious prosecution
claim.
On appeal to the High Court, the Court held that a plaintiff needs to
establish that the criminal proceedings terminated in their favour, but did not
need to establish their innocence. The
Court agreed with the NSW Court of Appeal that the direction by the DPP was
equivalent to the entry of nolle prosequi
and was sufficient to establish that the criminal proceedings had terminated in
the plaintiff’s favour.
Some comments should be made about the High Court’s reasoning.
There are some statements made in the judgments to the effect that guilt
or innocence of the plaintiff is not an issue in a cause of action for malicious
prosecution. That may be accepted, but
only in a narrow sense. It is true in
the sense that a plaintiff does not need to prove innocence. But if a plaintiff remains convicted of an
offence then the proceedings have not terminated in their favour, and
accordingly guilt remain relevant in that sense.
However, it may also remain relevant in an evidentiary sense as
well. Take, for example, a malicious
prosecution case that will be heard in the NSW district Court next week. In that case the DPP issued a direction that
there be no further proceedings, and accordingly the proceedings terminated
favourably to the plaintiff, and she is not required to prove her
innocence. However in the civil
proceedings she has sued not only the State of NSW but the complainants whose
statements brought about the charges in the first place. In order to succeed the plaintiff must also
prove an absence of reasonable and probable cause, and that the prosecution was
brought about maliciously. To the extent
those two elements of the cause of action are directed against the complainants,
it remains open to those defendants to prove that the plaintiff in fact
committed the offences for which she was charged, in order to firstly establish
reasonable and probable cause and secondly to rebut any inference of malice.
More fundamentally, the supposed justification for the element of the
cause of action that requires proceedings to have terminated favourably for the
plaintiff does not support the outcome arrived at in this case (or indeed much
of the other caselaw in relation to favourable termination. That justification is described as being “the
concern of the law with the consistency of judicial determinations, a concern
that is distinct from proof of actual innocence or guilt: a plaintiff who is
wrongfully convicted of an offence cannot maintain an action for malicious
prosecution notwithstanding that he or she may possess irrefutable proof of
innocence.” But that concern of
consistency of judicial determinations is not achieved by a rule that allows
anything short of acquittal as satisfying the favourable termination
element. Unless the termination of
proceedings is such as to foreclose the possibility of subsequent prosecution,
there always remains the possibility of a successful claim for malicious
prosecution being followed by a successful prosecution for the crime. A
direction under section 7 of the section 7(2)(b) of the Director of Public Prosecutions Act 1986,
like the entry of nolle prosequi,
does not prevent the recommencement of criminal proceedings, and so the
possibility of inconsistent outcomes remains.
One undesirable consequence of
this rule, returning now to the facts of Beckett’s case, is this. The decision not to retry Beckett was
undoubtedly made having regard to the fact she had already effectively served
her time. It would be unfortunate for
decisions as to whether to retry an accused came to be influenced by the
consideration that the State would then be left exposed to a claim for
malicious prosecution. What purpose does it serve to encourage prosecuting
authorities to retry an accused simply to establish their guilt, in order to
foreclose a civil claim, in circumstances where further punishment is unlikely.