Review of the Judicature Act 1908
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February 2012, Wellington, New Zealand | ISSUES PAPER 29 REVIEW OF THE JUDICATURE ACT 1908 TOWARDS A CONSOLIDATED COURTS ACT February 2012, Wellington, New Zealand | ISSUES PAPER 29 REVIEW OF THE JUDICATURE ACT 1908 TOWARDS A CONSOLIDATED COURTS ACT The Law Commission is an independent, publicly funded, central advisory body established by statute to undertake the systematic review, reform and development of the law of New Zealand. Its purpose is to help achieve law that is just, principled, and accessible, and that reflects the heritage and aspirations of the peoples of New Zealand. The Commissioners are: Hon Sir Grant Hammond KNZM – President Emeritus Professor John Burrows QC Professor Geoff McLay The General Manager of the Law Commission is Brigid Corcoran The office of the Law Commission is at Level 19, 171 Featherston Street, Wellington Postal address: PO Box 2590, Wellington 6140, New Zealand Document Exchange Number: sp 23534 Telephone: (04) 473-3453, Facsimile: (04) 471-0959 Email: [email protected] Internet: www.lawcom.govt.nz National Library of New Zealand Cataloguing-in-Publication Data Review of the Judicature Act 1908 [electronic resource] : towards a consolidated Courts Act. (Issues paper ; 29) ISBN 978-1-877569-31-9 1. New Zealand. Judicature Act 1908. 2. Courts—New Zealand. I. New Zealand. Law Commission. II. Series: Issues paper (New Zealand. Law Commission : Online) ; 29. This Issues Paper is also available on the internet at the Law Commission’s website: www.lawcom.govt.nz ii Law Commission Issues Paper FOREWORD The Law Commission has a reference from the Minister of Justice to review the Judicature Act 1908, and the other legislation governing the operation of the New Zealand courts of general jurisdiction, with a view to creating a consolidated Courts Act and updating and reorganising other provisions of the Judicature Act 1908. The principal focus of this review is, therefore, on reorganisation, consolidation, and modernisation. It is not the intention that the Commission should revisit major matters of policy underlining the present legislation, such as the structure of the courts or matters of that character. Since it was enacted, the Judicature Act 1908 has been raddled with amendments, the antecedents of which are often difficult to follow as they have become lost in the mists of time. Other legislation governing the courts of general jurisdiction has also been passed. As a result, we now have a distinctly patchwork quilt appearance of statutes relating to our trial and appellate courts, some of which overlap in various respects, or have problems or gaps in them. Some provisions have become redundant or outmoded. Consequently, a New Zealand citizen will have grave difficulty trying to appreciate the picture as a whole, and even trained lawyers routinely have difficulty with some aspects of the relationships between the various courts and jurisdictions. This is not satisfactory from a constitutional point of view. A clear and unproblematic regime for the architecture and relationship of the New Zealand courts is vital to the very basis of this arm of government. The present situation also has the potential to impede access to justice: all citizens are bound by the law and all are entitled to resort to a court to enforce lawful obligations. It is undesirable that citizens and their legal representatives should have to struggle to piece together the whole picture from diverse statutory sources. At a more pragmatic level, inevitably when there are individuated statutes for individuated courts there will be gaps or ‘rubs’ between them, or particular problems emerge over the passage of time which could stand attention, although they would not warrant an isolated statutory intervention. Other provisions simply become outdated and need modification. At least in this instance, consolidation and revision can and should go hand in hand. The ultimate objective of this reference is to establish in one place, in clear and modern terms, the institutional and architectural basis of each of the New Zealand courts of general jurisdiction. Review of the Judicature Act 1908: towards a consolidated Courts Act iii A task of this kind involves an exercise in judgement as to what is within the reference and what is not. Where we have been in doubt about whether a provision should be repealed or modified, we have tended to retain the status quo. We have been anxious not to give rise to substantive law changes by a side- wind. Sometimes we note difficulties with a provision, but indicate that reform, if called for at all, would be better undertaken in a different context, or by a further limited reference. However, there are some areas in which we suggest changes which go beyond the consolidation of existing legislation. In particular, there are proposals made in relation to the appointment of judges, the possible abolition of civil jury trials, changes in the approach taken to vexatious litigation, wasted costs, and the constitution of a single District Court. We welcome submitters’ comments on all of these matters. In preparing this paper, we have had the benefit of views expressed by the heads of the various benches of the relevant courts as to any problems they see in the existing legislation. The release of this paper provides an opportunity for others, particularly members of the legal profession and the public, to comment on any matters raised, and identify other issues of concern and possible solutions. After further consultation, the Commission will issue a final report, setting out our recommendations. We intend to include a complete draft bill for a new Courts Act in our final report (although this is dependent on drafting resources). This Issues Paper includes some draft provisions, where we have reached a preliminary view that new provisions may be helpful and that draft wording would be useful for consultation purposes. These also show that generic provisions relating to all courts are possible and useful. Finally, I note that in March 2011, as part of this reference the Commission published Issues Paper 21, Towards a New Courts Act – A Register of Judges’ Pecuniary Interests? The Commission will make its recommendations on that subject in our final report on this matter. Hon Sir Grant Hammond KNZM President of the Law Commission iv Law Commission Issues Paper Call for submissions Submissions or comments (formal or informal) on this Issues Paper should be sent to Lecretia Seales, Senior Legal and Policy Adviser, by Friday 27 April 2012. Law Commission PO Box 2590 Wellington 6140, DX SP 23534 or by email to [email protected] The Law Commission asks for any submissions or comments on this Issues Paper. The submission can be set out in any format but it is helpful to specify the number of the question you are discussing. Submitters are invited to focus on any of the questions, particularly in areas that especially concern them, or about which they have particular views. It is certainly not expected that each submitter will answer every question. Alternatively, submitters may like to make a comment about the review that is not in response to a question in the paper and this is also welcomed. Official Information Act 1982 The Law Commission’s processes are essentially public, and it is subject to the Official Information Act 1982. Thus copies of submissions made to the Law Commission will normally be made available on request, and the Commission may refer to submissions in its reports. Any requests for withholding of information on grounds of confidentiality or for any other reason will be determined in accordance with the Official Information Act 1982. Review of the Judicature Act 1908: towards a consolidated Courts Act v vi Law Commission Issues Paper Contents Review of the Judicature Act 1908: towards a consolidated Courts Act Foreword............................................................................................................... iii CALL FOR SUBMISSIONS v PART 1 – INTRODUCTION 5 Chapter 1 The legislative landscape .................................................................6 The.Judicature.Act.1908........................................................................................6 Objective.of.this.review..........................................................................................7 Judicature.Amendment.Act.1972..........................................................................9 Parts.of.this.Issues.Paper........................................................................................9 Chapter 2 The present New Zealand courts ...................................................12 Structure................................................................................................................12 District.Courts.......................................................................................................12 High.Court.............................................................................................................15 Court.of.Appeal.....................................................................................................16 Supreme.Court......................................................................................................17 PART 2 – JUDGES 21 Chapter 3 Judicial appointments ....................................................................22 Introduction..........................................................................................................22 Current.legislative.provisions..............................................................................23