The Partial Defence of Provocation
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LEGISLATIVE COUNCIL Select Committee on the Partial Defence of Provocation The partial defence of provocation Ordered to be printed 23 April 2013 according to Standing Order 231. Report – April 2013 i LEGISLATIVE COUNCIL The partial defence of provocation New South Wales Parliamentary Library cataloguing-in-publication data: New South Wales. Parliament. Legislative Council. Select Committee on the Partial Defence of Provocation. The partial defence of provocation / Select Committee on the Partial Defence of Provocation. [Sydney, N.S.W.] : The Committee, 2013. – xiv, 244p. ; 30 cm. Chair: Revd the Hon Fred Nile MLC. “April 2013” ISBN 9781920788568 1. Provocation (Criminal law)—New South Wales. 2. Defence (Criminal procedure)—New South Wales. 3. Criminal liability— New South Wales. I. Title II. Nile, Fred. III. Series: New South Wales. Parliament. Select Committee on the Partial Defence of Provocation. Report ; no. 1. 345.944 (DDC22) ii Report – April 2013 SELECT COMMITTEE ON THE PARTIAL DEFENCE OF PROVOCATION How to contact the Committee Members of the Select Committee on the Partial Defence of Provocation can be contacted through the Committee Secretariat. Written correspondence and enquiries should be directed to: The Director Select Committee on the partial defence of provocation Legislative Council Parliament House, Macquarie Street Sydney New South Wales 2000 Internet www.parliament.nsw.gov.au Email [email protected] Telephone 02 9230 3504 Facsimile 02 9230 2981 Report – April 2013 iii LEGISLATIVE COUNCIL The partial defence of provocation Terms of reference 1. That the Select Committee on the Partial Defence of Provocation inquire into and report on: (a) the retention of the partial defence of provocation including: (i) abolishing the defence, (ii) amending the elements of the defence in light of proposals in other jurisdictions, (b) the adequacy of the defence of self-defence for victims of prolonged domestic and sexual violence, and (c) any other related matters. 2. That the Committee report by 2 May 2013. These terms of reference were referred to the Committee by the Legislative Council: Minutes No. 92, 14 June 2012, Item 10. iv Report – April 2013 SELECT COMMITTEE ON THE PARTIAL DEFENCE OF PROVOCATION Committee membership Revd the Hon Fred Nile MLC Christian Democratic Party (Chair) The Hon Trevor Khan MLC The Nationals (Deputy Chair) The Hon David Clarke MLC Liberal Party Mr Scot MacDonald MLC Liberal Party The Hon Adam Searle MLC Australian Labor Party Mr David Shoebridge MLC The Greens The Hon Helen Westwood MLC Australian Labor Party Secretariat Ms Rachel Callinan, Director Ms Vanessa Viaggio, Principal Council Officer Ms Lynn Race, Council Officer Assistant Report – April 2013 v LEGISLATIVE COUNCIL The partial defence of provocation Table of contents Chairman’s foreword x Summary of recommendations xii Chapter 1 Introduction 1 Establishment of the Committee 1 Terms of reference 1 Conduct of the Inquiry 2 Timeframe 2 Submissions 2 Hearings 3 Options Paper 3 Overview of stakeholder views 3 Supporters of abolition 3 Supporters of retention without amendment 4 Supporters of retention with amendment 5 Other suggestions 5 Structure of report 6 Chapter 2 Defences to homicide and provocation in the NSW context 7 The distinction between murder and manslaughter 7 Defences to murder 8 Self-defence 8 Excessive self-defence 9 Provocation 10 Substantial impairment by abnormality of the mind 14 Provocation being run with other defences and partial defences 17 How frequently is the provocation defence raised, and by whom? 18 What circumstances lead to homicides in which provocation is accepted? 19 Judicial Commission study – manslaughter on the basis of provocation in the period 1 January 1990 to 21 September 2004 19 Fitz-Gibbon study – manslaughter on the basis of provocation in the period January 2005 to December 2010 21 Average sentences for murder and manslaughter in NSW 22 Chapter 3 Provocation in other jurisdictions 23 Australian jurisdictions 23 Tasmania 23 vi Report – April 2013 SELECT COMMITTEE ON THE PARTIAL DEFENCE OF PROVOCATION Australian Capital Territory 24 Victoria 24 Northern Territory 26 Western Australia 26 Queensland 27 International jurisdictions 28 New Zealand 28 United Kingdom 30 Chapter 4 Key issues raised in respect of provocation 33 Gender bias 33 Gender bias against women 34 Gender bias against homosexual men, or against men perceived to be homosexual 40 Committee comment 45 Anachronistic and archaic 46 Committee comment 48 Promotes a culture of victim blaming 49 Committee comment 52 Concerns about the legal test for provocation 53 Loss of self-control 53 The ‘ordinary person’ test – the objective test 57 The impact of the legal test and the ability of the jury to understand it 60 Committee comment 63 Chapter 5 Abolition of provocation: sentencing and the adequacy of self-defence 67 Overview 67 Risks associated with dealing with provocation as a sentencing factor only 67 Committee comment 73 Self-defence 74 Overview 74 Adequacy of self-defence for victims of prolonged violence 76 ‘Strengthening’ self-defence for ‘battered women’ 78 Committee comment 82 Review by the NSW Law Reform Commission 82 Committee comment 86 Committee conclusion 87 Chapter 6 Reform options 89 ‘Positive restriction’ model 89 Inquiry participant views on the ‘positive restriction’ model 89 Report – April 2013 vii LEGISLATIVE COUNCIL The partial defence of provocation Committee comment 94 ‘Exclusionary conduct’ model 96 General views on the ‘exclusionary conduct’ model 96 Responses to excluding specific conduct 97 The Clinton case experience and its impact on exclusionary conduct models 106 Committee comment 113 Reforming the legal test (the Wood model) 115 Reforming the legal test 115 Self-induced intoxication 119 Self-induced provocation 120 Inquiry participant comment on the Wood model 121 Committee comment 123 Chapter 7 Reform options continued 125 A ‘gross provocation’ model 125 The United Kingdom Law Commission’s views on provocation 125 The Law Commission’s ‘gross provocation’ model 127 The ‘gross provocation’ model in the Options Paper 136 Raising the requisite standard in the objective test 138 Additional exclusions 138 Stakeholder views on the ‘gross provocation’ model 140 Removal of the requirement of ‘loss of self-control’ 140 Raising the bar to require that provocation be ‘grossly provocative’ 141 Overlap with self-defence and excessive self-defence 143 Revised test 145 Exclusionary conduct provisions 148 The role of the judge and jury 152 Chapter 8 Procedural and evidentiary issues 155 Procedural issues 155 Pre-trial disclosure 155 Charge negotiation, and prosecutorial guidelines 157 Evidentiary issues 168 The onus and standard of proof 168 ‘Social framework’ evidence 178 Restricting evidence that denigrates the deceased 186 Chapter 9 Elements of a preferred model 191 Outline of the model 191 Overriding principle underpinning the partial defence of provocation 191 In what circumstances should provocation be available? 192 In what circumstances should provocation be unavailable or further restricted? 197 The role of the judge and jury 204 viii Report – April 2013 SELECT COMMITTEE ON THE PARTIAL DEFENCE OF PROVOCATION Non-legislative recommendations 205 Education 205 Review of the law of homicide and homicide defences 208 Concluding comment 209 Appendix 1 Submissions 211 Appendix 2 Witnesses at hearings 213 Appendix 3 Tabled documents 216 Appendix 4 Answers to questions on notice 217 Appendix 5 Suggested direction [6-410] to jury on the defence of provocation 218 Appendix 6 Minutes 220 Report – April 2013 ix LEGISLATIVE COUNCIL The partial defence of provocation Chairman’s foreword I am pleased to present the unanimous Report of the Select Committee on the Partial Defence of Provocation. The Committee was established in June 2012 following the high profile Singh case. The motion establishing the Committee received support from across the political spectrum, demonstrating the significance and urgency with which the issue was viewed. In Singh, Mr Singh stood trial for murder after cutting his wife’s throat several times with a box-cutter. Mr Singh claimed that his wife, Manpreet Kaur, provoked him by telling him she had never loved him, was in love with someone else and threatened to have him deported and, that as a result, he lost his self-control and killed her. Mr Singh was convicted of manslaughter based on the partial defence of provocation and sentenced to a non-parole term of imprisonment of six years. The community outrage at the killing being described as ‘manslaughter’ not ‘murder’, and the sentence length is certainly understandable. It is difficult to comprehend how a man who kills his wife in such circumstances could be entitled to even a partial defence to murder. A series of arguments for abolishing the partial defence were presented. In particular, the Committee heard that the defence has tended to favour men and the archetypal male response to ‘provocative’ circumstances. It was also argued that the defence’s historical roots no longer justify retaining it, as NSW no longer has the death penalty or mandatory sentencing provisions for murder. Perhaps the most persuasive argument is that in today’s modern society, we expect that citizens will maintain their self-control, even in circumstances that might be ‘provocative’. It is unacceptable that the law offers a partial defence to people who kill in response to ‘provocative’ circumstances which are, in fact, a normal part of human experience, such as being told a relationship is going to end, discovering infidelity, or feeling jealous or betrayed. However, the Committee was unable to reach a consensus on whether the partial defence of provocation should be abolished. The Committee has been mindful that there are some defendants, particularly women who have been victims of long-term domestic abuse, for whom the partial defence of provocation may appropriately reflect their legal and moral responsibility in circumstances where self-defence would be difficult to establish. The Committee has therefore developed a reform model, which draws on extensive consultation undertaken by the Committee throughout the Inquiry.