PROBLEMATIC ASPECTS OF THE RIGHT TO BAIL UNDER SOUTH AFRICAN LAW: A COMPARISON WITH CANADIAN LAW AND PROPOSALS FOR REFORM

Transcription

1 PROBLEMATIC ASPECTS OF THE RIGHT TO BAIL UNDER SOUTH AFRICAN LAW: A COMPARISON WITH CANADIAN LAW AND PROPOSALS FOR REFORM THESIS SUBMITTED IN CONFORMITY WITH THE REQUIRE MENTS OF THE DEGREE LLD AT THE FACULTY OF LAW UNIVERSITY OF PRETORIA BY WILLEM PETRUS DE VILLIERS BlUR LLB (PRET) UNDER THE PROMOTORSHIP OF PROF FJ VILJOEN NOVEMBER 2000 University of Pretoria

2 SUMMARY The right to bail has been a contentious issue for some time under South African law. In recent times many interested parties have proclaimed that bail is not granted judiciously. This study investigates whether an equitable balance has been achieved between the individual's right to liberty and the interests of society under South African law. As part of the process the correct interpretation and application of the principles are proposed. This is effected by considering and comparing the relevant principles under contemporary Canadian and South African law, and the circumstances under which they operate. The historical origins and the development of these principles up to 30 June 1999 are studied to clarify the principles and purpose of bail and to investigate the balance that existed at different times in history. The constitutional history of Canada confirms that the Canadian Charter and Charter jurisprudence are suitable sources of reference for human rights in South Africa. The presumption of innocence as the fundamental principle underlying the right to bail is researched. It is also investigated whether the constitutional guarantees to bail are part of, or specific instances of the rights enumerated in section 7 of the Canadian Charter and section 12 of the South African Bill of Rights. If so, does that mean that there is a residual right to procedural fairness in terms of the last-mentioned sections? The scope of the respective enshrined rights provided for by sections 11 (e) of the Canadian Charter and 35(1 )(f) of the Final Constitution is also discussed in some detail. By dissecting these provisions an attempt is made to clarify their exact scope.

3 ii This is followed by a discussion of some of the principles and provisions that have caused the most controversy of late under South African law. The first of these is the question of onus that is crucial in all proceedings, including bail applications. I also discuss the admissibility at the subsequent criminal trial of evidence tendered by the accused for purposes of bail proceedings, and the question of access to police information for purposes of the bail application under South African and Canadian law. My conclusions indicate that the Canadian Charter is an excellent model to learn from. I show that the foundational basis on and structure within which the right to bail operates, is often misunderstood under South African law. It is also shown that the liberty right in the context of the right to bail, to a great extent favours the applicant under Canadian law, when compared to the South African situation. I indicate that the policy-makers have in their quest to find a balance overstepped the mark in combating crime, also if compared with the situation in Canada. A threshold constitutional protection of the right to bail is proposed, along with measures enhancing due process and an equitable balance between the liberty interests of the applicant (or accused) and the interests of society. 11,1 l' I

4 iii OPSOMMING Die reg op borgtog is reeds vir In geruime tyd In omstrede aangeleentheid in die Suid-Afrikaanse reg. In die onlangse verlede het talle belanghebbende partye verklaar dat borgtog nie oordeelkundig toegestaan word nie. Die studie ondersoek of In billike balans tussen die individu se reg op vryheid en die belange van die gemeenskap in die Suid-Afrikaanse reg bereik is. As deel van die proses word die korrekte interpretasie en toepassing van die beginsels voorgestel. Dit word bewerkstellig deur die oorweging en vergelyking van die relevante beginsels onder die huidige Kanadese en Suid Afrikaanse reg en die omstandighede waaronder dit fungeer. Die historiese oorsprong en ontwikkeling van hierdie beginsels tot en met 30 Junie 1999 word bestudeer om duidelikheid aangaande die beginsels en doel van borgtog te kry en om ondersoek in te stel na die balans wat histories bestaan het. Die konstitusionele geskiedenis van Kanada bevestig dat die "Canadian Charter" en "Charter"-regsleer gepaste verwysingsbronne vir menseregte in Suid-Afrika is. Die vermoede van onskuld as die fundamentele beginsel onderliggend aan die reg tot borgtog word nagevors. Dit word ook nagevors of die grondwetlike waarborge op borgtog deel vorm van, of spesifieke verskynings is van, die regte uiteengesit in artikel 7 van die "Canadian Charter" en artikel 12 van die Suid-Afrikaanse handves van menseregte. Indien dit so is, beteken dit dat daar In residuele reg op regverdige prosedures in terme van laasgenoemde artikels is? Die omvang van die onderskeie verskanste regte vervat in artikel 11 (e) van die "Canadian Charter" en artikel 35(1 )(f) van die Finale Grondwet word ook uitvoerig bespreek. Deur die bepalings te dissekteer word gepoog om die presiese omvang daarvan te verhelder.

5 iv Dit word gevolg deur In bespreking van sommige van die beginsels en bepalings wat die meeste omstredenheid in die onlangse verlede in die Suid Afrikaanse reg besorg het. Die eerste hiervan is die vraag na die bewyslas, wat krities in aile verrigtinge insluitende borgaansoeke is. Ek bespreek ook die toelaatbaarheid by die opvolgende kriminele verhoor van getuienis aangebied deur die beskuldigde vir doeleindes van die borgaansoek, en die vraag om toegang tot die informasie gehou deur die polisie vir doeleindes van die borgaansoek onder die Suid-Afrikaanse en Kanadese reg. My gevolgtrekkings dui aan dat die "Canadian Charter" In uitstekende model is om van te leer. Ek wys daarop dat die basis waarop, en struktuur waarbinne die reg op borgtog funksioneer, onder die Suid Afrikaanse reg dikwels misverstaan word. Dit word ook uitgewys dat die reg op vryheid in die konteks van In reg op borgtog, tot In groot mate die applikant onder Kanadese reg, wanneer dit vergelyk word met die Suid-Afrikaanse situasie, bevoordeel. Ek dui ook aan dat die beleidsmakers in hulle strewe om In balans te vind te ver gegaan het om misdaad te bekamp, ook indien dit met die situasie in Kanada vergelyk word. 'n Drumpel grondwetlike beskerming van die reg op borgtog word voorgestel, tesame met maatstawwe wat In billike balans tussen die belange in vryheid van die applikant (of beskuldigde) en die belange van die gemeenskap bevorder.,i, j II I I,,,"I \ I "

6 v ACKNOWLEDGEMENTS It has been said that a thesis is a monster with many heads. In conquering this monster many people's lives are unfortunately compromised. I happily take this opportunity in extending gratitude to the following people: My promoter Frans Viljoen for his competent and speedy guidance, systematic approach, and meticulous attention to detail. Anita Muller, whose prompt typing over an extended period, of a substantial part of the manuscript, saved me lots of time. My friends and family, who had to sacrifice and endure with me. My friends and colleagues, Chris Nagel, Johan Lotz and Dirk Kotze who contributed in different ways. The friendly assistance of Cora Badenhorst and the other personnel of the Law Library at the University of Pretoria. The University of Pretoria is also thanked for allowing me to take leave at a crucial time during my research.

7 vi CONTENTS SUMMARY... OPSOMMING... iii ACKNOWLEDGEMENTS... v CONTENTS vi ABBREVIATIONS AND ACRONyMS... xx CHAPTER 1 INTRODUCTION 1.1 CONTEXTUAL BACKGROUND AIM OF THE STUDy IMPORTANCE OF THE TOPIC OVERVIEW OF CHAPTERS DIFFICULTIES AND LIMITATIONS OF THE STUDy General Difficulty in determining principles fuelled in some instances by South African legislature Foundational confusion Difficulty in comparative approach Limitations Scope Time frame Limitation in comparative approach MODUS OPERANDI AND RESEARCH METHODOLOGy... 24

8 vii Modus operandi Research methodology Interviews Literature review WORK ALREADY DONE IN THE FIELD CHAPTER 2 HISTORICAL OVERVIEW OF THE ORIGINS AND DEVELOP MENT OF BAIL UNDER SOUTH AFRICAN LAW UP TO 30 JUNE INTRODUC1"ION ROMAN LAW Introduction The legis actio-procedure The formulae-procedure Cognitio extraordinaria Introduction Before Justinian Justinian law ROMAN-DUTCH LAW Introduction Imprisonment Military custody Recognisance Release to sureties ENGLISH LAW SOUTH AFRICAN LAW BEFORE THE INTERIM CONSTITUTION South African law before unification The position in the Cape during the period

9 VIII The position in the Cape during the period The position in the Transvaal Republic The position in the Orange Free State Republic The position in Natal South African law after unification The period The period : Statutory inroads into the right to bail The period : The Criminal Procedure Act 51 of SOUTH AFRICAN LAW IN THE CONSTITUTIONAL ERA AFTER Introduction The period June A summary of the position as at 30 June General Arrest as method of securing attendance of accused in court The granting of bail before conviction a General b The effect and conditions of bail c Bail before first appearance in lower court d Bail application in court e Appeal to superior court with regard to bail f Failure to observe conditions of bail g Failure of accused on bail to appear

10 ix h Cancellation of bail CONCLUSION CHAPTER 3 CONSTITUTIONAL LAW OF CANADA 3.1 INTRODUCTION THE HISTORICAL CONTEXT Pre-colonial times Colonial settlement and governance A summarised history Early colonial influences The formation of the Canadian federation The Constitution Act, The period after 1867 up to the 1950s The 1950s - Judicial activism General "Criminal law" and "implied liberties" as approach Criticism of approaches Adoption of Bill of Rights General Impact of Bill of Rights on non-legislative matters Impact of Bill of Rights on legislation a General b Pre-Bill legislation c Post-Bill legislation Contents of Bill: Frozen rights? The period 1960 up to Loss of enthusiasm by judiciary Libertarian initiatives by politicians

11 x a Adoption of human rights legislation b The initiatives in adopting a charter The period 1980 to The Constitution Act l up to the end of June The judiciary On the political front THE JUDICIAL SYSTEM OF CANADA Introduction Federal courts General Supreme Court of Canada Federal Court of Canada Provincial courts General Federally appointed judges Provincially appointed judges CONCLUSION CHAPTER 4 BAIL UNDER CANADIAN LAW 4.1 INTRODUCTION BRIEF SURVEY OF BAIL UNDER CANADIAN LAW BEFORE THE BAIL REFORM ACT (Can) c INFLUENCE OF THE BAIL REFORM ACT AND THE POSITION AS AT 30 JUNE General Arrest of accused by peace officer Release from custody by peace officer ,,I',!

12 xi Release from custody by officer in charge Judicial interim release Appearance before a justice of the peace The interim release hearing Person before justice while not in custody a General b Conclusion Bail review CONCLUSiON CHAPTER 5 THE OPERATION OF THE PRESUMPTION OF INNOCENCE AND ITS ROLE IN BAIL PROCEEDINGS UNDER CANADIAN AND SOUTH AFRICAN LAW 5.1 INTRODUCTION CANADIAN LAW General Application at trial Application outside the trial context Bail after conviction Prelude Pending sentence Pending appeal or review Bail pending new trial SOUTH AFRICAN LAW General Application at trial Application outside the trial context Bail after conviction

13 j xii Prelude Pending sentence Pending appeal or review Bail pending new trial Appraisal CONCLUSION CHAPTER 6 THE POSSIBLE RELIANCE OF AN APPLICANT IN BAIL PROCEEDINGS UNDER CANADIAN AND SOUTH AFRICAN LAW ON A RESIDUAL RIGHT TO PROCEDURAL FAIRNESS IN TERMS OF SECTION 7 OF THE CANADIAN CHARTER AND SECTION 12 OF THE FINAL CONSTITUTION RESPECTIVELY 6.1 INTRODUCTION CANADIAN LAW General Appraisal SOUTH AFRICAN LAW General Appraisal CONCLUSION CHAPTER 7 THE SCOPE OF THE RIGHT TO BAIL PROVIDED FOR BY SECTION 11 (e) OF THE CANADIAN CHARTER AND SECTION 35(1}(f} OF THE FINAL CONSTITUTION 7.1 II'JTRODUC1-ION CANADIAN LAW: THE SCOPE OF SECTION 11 (e) General j', IH ", I i

14 XIII IIAny person" "charged with an offence" "charged" "with an offence" "has the right not to be denied... bail" "without just cause" IIreasonable" SOUTH AFRICAN LAW: THE SCOPE OF SECTION 35(1 )(f) General "Everyone" Jlwho is arrested for allegedly committing an offence" IIw ho is arrested" a General b What constitutes arrest? c What constitutes detention? d When is one an accused? e Significance of and interrelationship between categories "for allegedly committing" "an offence" "has the right to be released from detention" "if the interests of justice permit" "subject to reasonable conditions" General Release on bail without or with conditions as envisaged by chapter 9 before sentence and release on bail pending appeal or review without or with conditions as envisaged by chapter

15 xiv Juvenile may be placed in place of safety or under supervision Release on warning CONCLUSiON CHAPTER 8 THE ONUS OF PROOF IN BAIL PROCEEDINGS 8.1 INTRODUCTION... '" CANADIAN LAW Before the Bail Reform Act The Bail Reform Act (Can) c GeneraL The Criminal Law Amendment Act (Can) c a General b The Criminal Code RSC 1970, c C b.1 Section 457(5.1) b.2 Section c The Criminal Code RSC 1985, c C c.1 Section 515(6) c.2 Section 522(2) SOUTH AFRICAN LAW Before the Interim Constitution General The origin of the burden of proof on an applicant for bail The Interim Constitution General I In I.!l~ I l' I, 'I

16 xv Bail application not amenable to an onus in the true sense Onus on the state Appraisal of viewpoints The Criminal Procedure Second Amendment Act 75 of General Section 60(1 )(a) of the Criminal Procedure Act Section 60(11) of the Criminal Procedure Act Court decisions The Final Constitution General The influence of section 35(1)(f) on onus The Criminal Procedure Second Amendment Act 85 of 1997 and position as at 30 June General The present position Constitutional scrutiny of the reverse onus in section 60( 11 ) CONCLUSION CHAPTER 9 THE ADMISSIBILITY AT THE SUBSEQUENT CRIMINAL TRIAL OF EVIDENCE TENDERED BY THE ACCUSED FOR PURPOSES OF THE BAIL PROCEEDINGS 9.1 INTRODUCTION CANADIAN LAW General The use of prior testimony for purposes of cross-examination "testifies" and "evidence so given"

17 xvi 9,. 2 4 "an y procee d'" Ings an d" any 0 ther procee d'" Ings Derivative evidence SOUTH AFRICAN LAW General Section 235 of the Criminal Procedure Act Section 203 of the Criminal Procedure Act Pre-constitutional jurisprudence Case-law after the Interim Constitution General The right against self-incrimination in the context of bail The link between the right against compelled pretrial self-incrimination and the trial The compulsion to testify Case-law under the Final Constitution The constitutionality of section 60(11 B)(c) Derivative evidence Critical appraisal CONCLUSION CHAPTER 10 ACCESS TO INFORMATION HELD BY POLICE OR STATE OFFICIALS FOR PURPOSES OF BAIL APPLICATION 10.1 INTRODUCTION CANADIAN LAW General General duty to disclose Summary conviction offences Indictable offences III I II I Ilh I d! I,!Iii,' I II

18 xvii Appraisal of duty to disclose for purposes of bail hearing SOUTH AFRICAN law GeneraL General duty to disclose Duty to disclose for purposes of bail hearing Appraisal of duty to disclose for purposes of bail hearing CONCLUSION CHAPTER 11 CONCLUSIONS AND RECOMMENDATIONS 11.1 INTRODUCTION ARE THE CANADIAN CHARTER AND CHARTER JURISPRU DENCE SUITABLE SOURCES OF REFERENCE FOR HUMAN RIGHTS AND PARTICULARLY THE RIGHT TO BAil IN SOUTH AFRICA? HOW DOES THE RIGHT TO BAil UNDER SOUTH AFRICAN law COMPARE WITH THE RIGHT UNDER CANADIAN law? General The scope of the right The foundational basis and structure General The presumption of innocence The right to "freedom and security" The principles in general General Arrest and appearance in court Remand in custody Onus Terms of release

19 , 11"1,! 11 xviii Role of presiding officer Authority to grant bail Constitutional standard Use at trial of evidence by an applicant for bail Discovery Bail pending sentence Bail pending appeal Review HAS AN EQUITABLE BALANCE BEEN ACHIEVED BETWEEN THE INTERESTS OF SOCIETY AND THE INDIVIDUAL'S RIGHT TO LIBERTY UNDER SOUTH AFRICAN LAW? RECOMMENDATIONS General The right to freedom and security The constitutional right to bail Terms of release "Exceptional circumstances" Self-incrimination Disclosure "Automatic review" Bail after hours Remand in custody Sections 60(4L 60(9) and 60( 10) of the Criminal Procedure Act CONCLUDING REMARKS ANNEXURES A: SELECTED PROVISIONS OF THE CANADIAN BILL OF RIGHTS,

20 xix B: SELECTED PROVISIONS OF THE CANADIAN CHARTER C: SELECTED PROVISIONS OF THE SOUTH AFRICAN BILL OF RIGHTS SOURCES A: TABLE OF CASES B: TABLE OF SELECTED ENACTMENTS C: SELECTED OTHER SOURCES D: BIBLIOGRAPHY

21 xx ABBREVIATIONS AND ACRONYMS (The abbreviations and acronyms appear in alphabetical order. Where an abbreviation or acronym is repeated the meaning appears from the context.) Alta CA Alta LR Alta QB AR BC Co Ct BCCA BCLR BCLR BCSC CC CCC CCC CPC CJQB CODESA Cox CPA Cr App R (S) Cr App R Alberta Court of Appeal/Alberta Supreme Court Appellate Division Alberta Law Reports Alberta Court of Queen's Bench Alberta Reports British Columbia County Court British Columbia Court of Appeal British Columbia Law Reports Butterworths Constitutional Law Reports British Columbia Supreme Court Constitutional Court Canadian Criminal Cases Criminal Code of Canada CarsweWs Practice Cases Convention for a Democratic South Africa Chief Justice of the Queen's Bench Cox's Criminal Cases Criminal Procedure Act Criminal Appeal Report, Sentencing Criminal Appeal Report

22 xxi CR CRNS CRR Ct Martial App Ct Criminal Reports Criminal Reports, New Series Canadian Rights Reporter Court Martial Appeal Court DLR DPP EHRR FC FC Fed Ct TO FOIA FLQ FTR HL IC KBD Man CA Man KB Dominion Law Reports Director of Public Prosecutions European Human Rights Reports Canada Law Reports, Federal Court Final Constitution Federal Court, Trial Division Freedom of Information Act Front de Liberation du Quebec Federal Trial Reports House of Lords Interim Constitution King's Bench Division Manitoba Court of Appeal Manitoba Court of King's Bench 1 Man Prov Ct Man QB Man R MVR NB Co Ct Manitoba Provincial Court Manitoba Court of Queen's Bench Manitoba.Reports Motor Vehicle Reports New Brunswick County Court

23 xxii Nfld & PEIR Nfld CA NR NS Co Ct NS Prov Ct NSCA NSR NSSC OAC Ont CA Ont Div Ct Ont HCJ Ont Prov Ct Ont Prov Div OR PC PEISC PElTO QBD Que CA Que SC RCMP Newfoundland & Prince Edward Island Reports Newfoundland Court of Appeal National Reporter Nova Scotia County Court Nova Scotia Provincial Court Nova Scotia Court of Appeal! Nova Scotia Supreme Court Appeal Division Nova Scotia Reports Nova Scotia Supreme Court Ontario Appeal Cases Ontario Court of Appeal Ontario Divisional Court Ontario High Court of Justice Ontario Provincial Court Ontario Provincial Division Ontario Reports Privy Council Prince Edward Island Supreme Court Prince Edward Island Trial Division Queen's Bench Division Quebec Court of Appeal Quebec Superior Court Royal Canadian Mounted Police. H~ I

24 xxiii RSC SA SACC SACR Sask CA Sask OB Sask R SCC SCR WCB WWR Revised Statutes of Canada South African Law Reports South African Journal of Criminal Law and Criminology South African Criminal Law Reports Saskatchewan Court of Appeal Saskatchewan Court of Oueen's Bench Saskatchewan Reports Supreme Court of Canada Canadian Law Reports, Supreme Court Weekly Criminal Bulletin Western Weekly Law Reports