Outlawry in Colonial Australia: the Felons Apprehension Act 1865
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[2005] ANZLH E-Journal Outlawry in Colonial Australia: The Felons Apprehension Acts 1865-1899 MICHAEL EBURN* I INTRODUCTION In 1865 the legislature in New South Wales introduced the concept of outlawry into Australian law. From a modern lawyer’s perspective, such a law, which authorised citizens to kill wanted outlaws on sight, is contrary to what we believe are fundamental tenets of the criminal law. This article reviews the Felons Apprehension Acts 1865- 1899 (NSW) as well as equivalent legislation in Victoria and Queensland. It goes on to identify how a person could be outlawed and the legal consequences of outlawry. The process and consequences of outlawry under the Act will be compared to earlier Australian law and the common law of England, to show that the law, although abhorrent today, was not such a radical departure from early Anglo-Australian law. II OUTLAWS IN AUSTRALIA When Arthur Phillip arrived with the first fleet the colonists carried with them “…so much of the English law, as is applicable to their own situation and condition in any infant colony…”1 Although New South Wales was a penal settlement, the colony was a society established and governed by law.2 Neither the convicts nor the indigenous population3 were considered outside the law’s reach or protection: they were not outlaws. By 1865, however, the public and legislature believed that outlawry was necessary to counter a law and order crises in the more remote areas of the colony. The activities of bushrangers, that is, gangs and individuals committing crimes in remote areas and enjoying widespread community support, led to demands for the offenders to be placed beyond the protection of the law.4 On 10 February 1865 a correspondent to the Sydney Morning Herald using the name “Justice” asked the question: “Why should not bushrangers guilty of murder and refusing to surrender for trial be tried and * Senior Lecturer, University of New England, Armidale, NSW 2351. A version of this paper was written during the author’s period as a visiting researcher at the University of Hull, Kingston-upon-Hull, UK. The author would like to acknowledge the contributions of Professor Gerry Johnstone and Dr Richard Burchill of the University of Hull, Professor Michael Stuckey of the University of Glamorgan and Associate Professor Mark Lunney of the University of New England for their helpful comments on earlier drafts of this paper. 1 Blackstone, Commentaries on the Laws of England (1769) cited in Castles, An Australian Legal History (1982), 11. See also R v Farrell, Dingle and Woodward (1831) 1 Legge 5; Mabo v Queensland (No 2) (1992) 175 CLR 1. 2 Neal, The rule of law in a penal colony: law and power in early New South Wales (1991); Paula- Jane Byrne, Criminal Law and Colonial Subject: New South Wales 1810-1830 (1993). 3 R v Murrell (1836) 1 Legge 72 4 See for example: Sydney Morning Herald, Sydney, Australia (SMH) 11 July 1864, 4; 12 July 1864, 4; 2 February 1865, 4; 7 February 1865, 4; 6 March 1865, 4. 80 [2005] ANZLH E-Journal convicted ex parte, and then be outlawed?”5 The Herald’s editorial writer agreed. He said: The suggestions of our correspondent “Justice” … deserve the careful consideration of the Cabinet and the Legislature. In our tenderness for the liberty of the subject, we are endangering the life of the subject.6 The legislature did take account of this pressure and proceeded to pass “An Act to facilitate the taking or apprehending of persons charged with certain Felonies and punishment of those by whom they are harboured”: the Felons Apprehension Act 1865.7 The Act was introduced to Parliament on the 10th March 1865 and finished its passage through the legislature on the 8th April 1865. Outlawry was the solution, but what was the problem? In 1865, Chief Justice Stephen gave a speech at the start of the Goulburn Circuit Court where he defended the Felons Apprehension Act.8 He argued that the Act was necessary to remove a defect in the common law. According to the Chief Justice, the law required a person to call upon an offender to surrender before force could be used to make an arrest. The fear was that if a citizen or police officer was required to call upon a notorious bushranger such as Ben Hall or Dan Morgan, the arrestor would lose any element of surprise and invite the bushranger to attack them. If the bushranger did attack then, and only then, could the arrestor use force in self defence. Given that the bushrangers were well armed, this posed a serious risk to anyone who might attempt to capture them. Stephen CJ said: It is too much to expect, that persons encountering armed ruffians like these should, in addition to the risk of being themselves instantly killed, incur the danger of a charge of felony, for an act righteously meant – but perhaps not in the strictness legally justifiable. The most humane will hardly contend, that the life of the honest man and good subject should be more liable to sacrifice than that of an accused and notorious practised robber; or that a proclaimed and armed felon of that stamp, who has set all law at defiance, may be allowed one more chance of his life, and of escape, by requiring a challenge – and so giving him the opportunity of adding a murder (probably not the first to his list of crimes.9 No direct authority was given for the proposition that the common law of 1865 or 1879 required a person to call on a suspected felon to surrender before they could use force, however, in 1825 when acquitting a constable for murder, Forbes CJ said: And let it be known by all persons in the like situations, that they are not allowed to resort to force unless opposed by force, and then only in proportion to the measure of resistance, or they subject themselves to be called to account which may lead to different results, from that which occurred to you [the defendant] this day.10 5 SMH, 10 February 1865, 4. 6 Ibid. 7 Felons Apprehension Act 1865 (NSW) s 10. 8 (1865) 4 SCR Appendix. 9 Ibid at 2. 10 R v Byron (Supreme Court of NSW, 7 October 1825) Decisions of the Superior Courts of New South Wales, 1788-1899, online: http://www.law.mq.edu.au/scnsw. 81 [2005] ANZLH E-Journal In 1834 Burton J said that under the law of England everyone was empowered and required to arrest a felon if they were present when the felony was committed but force was only justified where “… the offender flees and cannot be otherwise apprehended”.11 In 1865 Stephen CJ relied on “[a] note on this important question in Blackstone” as his authority for saying that the power of a citizen to arrest a suspected felon was unclear.12 The response to this legal position was to introduce outlawry so that a home owner, seeing a bushranger, such as Dan Morgan or Ben Hall, could take aim, shoot and kill without first calling upon the outlaw to surrender or waiting for them to commit an offence. The legislature wanted to reward citizens who would remove the threat of bushrangers and wanted to ensure that a person who killed a bushranger was not a “felon in law – patriot in fact – a murderer by statute, but a deliverer in morals.”13 Dan Morgan14 was shot and killed before the law could be applied to him. Notwithstanding this, the editor of the Sydney Morning Herald thought that the facts surrounding Morgan’s death demonstrated why the Felons Apprehension Act was required. Morgan was killed during the hold-up of Peechelba Station in Victoria. At the time he was forcing the owner and three others ahead of him at gun point when a station employee, Quinlan, shot him in the back. The editor of the Herald said: The law just passed for the apprehension of felons was not necessary to authorise the homicide. Morgan was then in the actual commission of crime. His pistol was pointed at the persons driven before him, who were in fearful peril. At any time a person so employed could be shot without challenge. It was because the man was behind him that he was able to take him and because he was unseen that he could fire in safety… Had Morgan been approaching the house without having committed on the way any act of aggression, the man [Quinlan] could not have fired the gun which brought him down, without being liable to prosecution for murder.15 In 1879 when introducing equivalent legislation into Victoria, Dr Madden MP summed up the position this way: If any person were to venture to shoot one of these men whose lives are now forfeit under the law, without previously calling upon him to surrender, that person would be liable to be placed on his trial for murder, and probably he would be convicted of manslaughter … But under this Bill a person may stalk them; he may steal upon them, and shoot them down as he would shoot a kangaroo. Under the law as it stands, for doing that, he would be liable to be tried for murder.16 11 Letter from Burton to Burke 25 August 1834 in Historical Records of Australia Series 1, vol 17, 524-533 in Decisions of the Superior Courts of New South Wales, 1788-1899, ibid. 12 SMH, 18 January 1865, 5. 13 SMH, 30 March 1865, 4 14 It was to facilitate the capture of both Morgan and Hall that the 1865 Act was passed, but in fact both these bushrangers were shot and killed before the Act came into force.