LAW REFORM COMMISSION OF IRELAND of Law...proposals for law reform and these are all available at ....

LAWREFORMCOMMISSIONOFIRELAND

i

Report

FifthProgrammeofLawReform

(LRC120-2019)

©LawReformCommission2019

StyneHouse,UpperHatchStreet,Dublin2,D02DY27

T. +35316377600

F. +35316377601

E. [email protected]

http://www.lawreform.ie

ISSN1393-3132


ii

AbouttheLawReformCommission

TheLawReformCommissionisanindependentstatutorybodyestablishedbytheLawReformCommissionAct1975.TheCommission’sprincipalroleistokeepthelawunderreviewandtomakeproposalsforreform,inparticular,byrecommendingtheenactmentoflegislationto

clarifyandmodernisethelaw.Sinceitwasestablished,theCommissionhaspublishedover200documents(WorkingPapers,ConsultationPapers,IssuesPapersandReports)containingproposalsforlawreformandtheseareallavailableatwww.lawreform.ie.Mostofthese

proposalshavecontributedinasignificantwaytothedevelopmentandenactmentofreforminglegislation.

TheCommission’sroleiscarriedoutprimarilyunderaProgrammeofLawReform.ThisFifthProgrammeofLawReformwaspreparedbytheCommissionfollowingbroadconsultationanddiscussion.Inaccordancewiththe1975Act,itwasapprovedbytheGovernmentinMarch

2019andplacedbeforebothHousesoftheOireachtas.TheCommissionalsoworksonspecificmattersreferredtoitbytheAttorneyGeneralunderthe1975Act.

TheCommission’sAccesstoLegislationworkmakeslegislationinitscurrentstate(asamendedratherthanasenacted)moreeasilyaccessibletothepublicinthreemainoutputs:theLegislationDirectory,theClassifiedListandtheRevisedActs.TheLegislationDirectory

compriseselectronicallysearchableindexesofamendmentstoprimaryandsecondarylegislationandimportantrelatedinformation.TheClassifiedListisaseparatelistofallActsoftheOireachtasthatremaininforceorganisedunder36majorsubject-matterheadings.

RevisedActsbringtogetherallamendmentsandchangestoanActinasingletext.TheCommissionprovidesonlineaccesstoselectedRevisedActsthatwereenactedbefore2005andRevisedActsareavailableforallActsenactedfrom2005onwards(otherthanFinance

andSocialWelfareActs)thathavebeentextuallyamended.


iii

CommissionMembers

President:MsJusticeMaryLaffoy,formerjudgeoftheSupremeCourt

Commissioner(full-time):

RaymondByrne,Barrister-at-Law

Commissioner:

DonnchaO’Connell,ProfessorofLaw

Commissioner:

MsJusticeCarmelStewart,judgeoftheHighCourt

Commissioner:

ThomasO’Malley,Barrister-at-Law


iv

CommissionStaff

LawReformResearch

DirectorofResearch:ProfessorCiaránBurke,BCL(French)(UCD,Toulouse),LLM(VUAmsterdam),LLM,PhD(EUIFlorence)

DeputyDirectorofResearch:RobertNoonan,LLB(Dubl),BCL(Oxon),PhD(Dubl)

AccesstoLegislation

Manager:

AlmaClissmann,BA(Mod),LLB,DipEurLaw(Bruges),Solicitor

DeputyManagers:

KateDoran,BCL,LLM(NUI),PhD(UL),Barrister-at-LawFionaCarroll,BA(Mod),LLB,Solicitor

Administration

HeadofAdministration:BrídRogers

ExecutiveOfficer:GerMooney

ClericalOfficers:RoslynDaltonGavinWalsh

LibraryandInformationManager:ÓrlaGillen,BA,MLIS


v

LegalResearchers

LeanneCaulfield,BCL,LLM(NUI)ÉireDempsey,BCL(NUI)LiamDempsey,BCL(UCD),LLM(QUB)

JamesEgleston,LLB,MA(NUI)SandraEaton,Dip(BIHE),BA(NUI),PDip(KingsInns),Barrister-at-LawIvanGramatikov,BA(ITCarlow),LLM(UCD),Barrister-at-Law

MorganeHervé,BCL(NUI),Maîtrise(ParisII),LLM(KCL)NiamhNíLeathlobhair,BCL(NUI)SuzanneScott,LLB(LingGerm)(Dubl),LLM(NUI)

PrincipalLegalResearcherforthisReport:

FinnKeyes,LLB(Dubl),LLM(UCL)


vi

FOREWORDBYTHEPRESIDENT1. InintroducingthisReportontheFifthProgrammeofLawReformImustacknowledgeatthe

outsetthatIhavehadnoinputintoitsdevelopment.Thecreditgoestomypredecessoras PresidentoftheCommission,Mr.JusticeJohnQuirke,andmyfellowCommissioners.Imust alsoacknowledgethatIgreatlyadmiretheprocessandtheworkwhichresultedintheFifth Programme.

2. AshappenedwiththeCommission’searlierProgrammes,thecontentoftheFifthProgramme istheresultofveryextensiveconsultationprocess,which,asoutlinedinPart2,tookplace overapproximatelyfifteenmonthsfromJune2017toAugust2018.Onbehalfofthe CommissionIexpressgratitudetoallthosewhoassistedtheCommissioninproducingthe draftFifthProgrammeinAugust2018,inparticularto:

§ thosewhofacilitatedandthosewhoparticipatedintheconsultativemeetings

aroundthecountryinUniversityofLimerick,NUIGalway,DundalkInstituteof

Technology,andUniversityCollegeCork;

§ thespeakersattheCommission’s2017AnnualConferenceinDublinCastleandall

thosewhoparticipatedinthediscussiononthedevelopmentoftheFifth

ProgrammeattheConference;

§ themembersoftheAttorneyGeneral’sConsultativeCommitteeonLawReform,

beingrepresentativesofallGovernmentDepartments,theLawSocietyofIreland,

theBarCouncilofIrelandandtheCommission;and

§ individualsandbodiesfromwhomtheCommissionreceivedwrittensubmissions

andthosewhoattendedmeetingswiththeCommission.

3. TheimportanceofpublicconsultationinrelationtothecontentandtheCommission’s developmentofaProgrammeofLawReformcannotbeemphasisedtoostrongly,norcanthe invaluablecontributionwhichmembersofthepublic,privateorganisations,andpublic organisationsmaketosuchcontentanddevelopment.

4. TheconsultativeprocessresultedinthedraftFifthProgrammebeingsubmittedtothe AttorneyGeneralinAugust2018.AsisoutlinedinPart2,thedraft,havingbeenapprovedby theOireachtasJointCommitteeonJustice and Equality,wasapprovedbytheGovernmentwithout modificationon20thMarch2019.OnbehalfoftheCommissionIexpressgratitudetothe AttorneyGeneral,SéamusWoulfeSC,andhisofficialsfortheirassistanceintheproductionof theFifthProgramme,andalsototheChairandmembersoftheOireachtasCommitteeandto theGovernmentforbringingtheFifthProgrammeintoexistence.


vii

5. AswiththeCommission’spreviousProgrammesofLawReform,thefifteenprojectsintheFifthProgrammecoverawiderangeofkeyareasoflaw,including:

§ Courts,PublicLawandtheDigitalEra;

§ CriminalLawandCriminalProcedure;

§ CivilLiabilityandCivilProcedure;

§ Evidence;

§ FamilyLaw;and

§ LandLaw.

6. Thereisalsoconsiderablediversityintherangeandfocusoftheprojectsinthoseareas.Inthisconnection,IthinkitisappropriatetodrawattentiontothecriteriawhichwereusedtoselecttheprojectsfortheFifthProgramme,assetoutinPart2.IconsiderthattheapplicationofthosecriteriaisinthepublicinterestandIenvisagethattheywillcontinuetobeappliedinthefuture.

7. AnotheraspectoftheprocesswhichIconsidertobeofparticularbenefitistheinclusionofanabstractinrelationtoeachproject,assetoutinPart1.EachabstractidentifiesthescopeoftheprojectandwillunderpintheworkoftheCommissionontheproject,includingthepublicationofanIssuesPaper.WhileIfindeachabstractparticularlyhelpfulbecauseIwasnotinvolvedinthepreparationanddevelopmentoftheFifthProgramme,theexistenceofeachabstractisunquestionablynecessaryforbringingclaritytothenatureandextentoftheCommission’staskinrelationtotheproject.

8. Asofnow,May2019,theCommissionisstillworkingonfiveoftheprojectsintheFourthProgramme,aswellastwoprojectsthatwerethesubjectofrequestsfromtheAttorneyGeneral,andithasbeenconcentratingoncompletingthoseprojects.TheCommissionhasalsostartedworkingonsomeoftheprojectsintheFifthProgrammeanditishopedthatitwillpublishIssuesPapersandReportsinrelationtomost,ifnotall,ofthoseprojectsoverthenextthreeyears,overwhichperiodthecollaborativeandconsultativeprocesseswillcontinue.

MsJusticeMaryLaffoy

President


ix

TableofContents

PART1 TheFifthProgrammeofLawReform 1

1.ReformofNon-CourtAdjudicativeBodiesandAppealstoCourts 32.ARegulatoryFrameworkforAdultSafeguarding 43.PrivacyandTechnologyintheDigitalEra 54.StructuredSentencing 65.ReviewandConsolidationoftheLawonSexualOffences 76.Perjury 87.CompensatingVictimsofCrime 98.RegulationofDetentioninGardaCustody 109.CapsonDamagesinPersonalInjuriesLitigation 1110.ProtectiveCostsOrders 1211.LiabilityofHotelsandRelatedEstablishments 1312.LiabilityofUnincorporatedAssociations 1413.AspectsoftheLawofEvidence 1514.AspectsofFamilyLaw 1615.AspectsofLandandConveyancingLaw 17

PART2 BackgroundtotheDevelopmentoftheFifthProgramme 19

TheCommission’sfunctions 19ProgrammesofLawReform 20Subject-MatterofProjectsExaminedDuringLifetimeofFourthProgramme 20DevelopmentoftheFifthProgramme 21

APPENDIXListofWrittenSubmissions 27

FIFTHPROGRAMMEOFLAWREFORM

1

PART1

THEFIFTHPROGRAMMEOFLAWREFORM

Inaccordancewithsection5(1)oftheLawReformCommissionAct1975,on20March2019theGovernmentapprovedtheCommission’sFifthProgrammeofLawReform.The15projectsintheFifthProgramme,andtheareasoflawtowhichtheypertain,are:

A. Courts,PublicLawandtheDigitalEra

(1) ReformofNon-CourtAdjudicativeBodiesandAppealstoCourts

(2) ARegulatoryFrameworkforAdultSafeguarding

(3) PrivacyandTechnologyintheDigitalEra

B. CriminalLawandCriminalProcedure

(4) StructuredSentencing

(5) ReviewandConsolidationoftheLawonSexualOffences

(6) Perjury

(7) CompensatingVictimsofCrime

(8) RegulationofDetentioninGardaCustody

C. CivilLiabilityandCivilProcedure

(9) CapsonDamagesinPersonalInjuriesLitigation

(10) ProtectiveCostsOrders

(11) LiabilityofHotelsandRelatedEstablishments

(12) LiabilityofUnincorporatedAssociations

D. Evidence

(13) AspectsoftheLawofEvidence

(a) BadCharacterEvidence

(b) Privilege


2

E. FamilyLaw

(14) AspectsofFamilyLaw

(a) ProperProvisiononDivorce

(b) ForeignDivorces

F. LandLaw

(15) AspectsofLandandConveyancingLaw

(a) AdversePossession

(b) PrescriptiveEasements

TheCommissionsetsoutbelowanabstractforeachofthe15projectsintheFifthProgramme

ofLawReform.Theseabstractswillformthebasisforthescopinganddevelopmentofeachproject,includingwhererelevantthepreparationandpublicationofIssuesPapersinordertoinformtheCommission’sanalysisoftheareasoflawinvolvedintheprojects.InPart2the

CommissionoutlinesthebackgroundtothedevelopmentoftheFifthProgramme.


3

1. ReformofNon-CourtAdjudicativeBodiesandAppealstoCourts

1.01 Aswithmostjurisdictions,Irelandnowhasagreatarrayofquasi-judicialbodiesempowered,usuallybylegislation,toadjudicateissuesanddisputesinparticularareas.TheyincludeAnBordPleanála,theInternationalProtectionAppealsTribunal,theResidentialTenanciesBoardandtheSocialWelfareAppealsOffice.

1.02 Theprofusionofsuchadjudicativebodiesisinevitableinthemodernadministrativestate,buttheyhavegrownupovermanydecadesonacase-by-casebasis,withoutanystandardapproachtoproceduralmattersortheirrelationshipwiththecourts,includingbywayofappealorreview.

1.03 TheCommissionnotedinits2016reportonthelawofevidencethevaryingproceduresandrulesofevidenceamongquasi-judicialbodies.1AnumberofsubmissionsreceivedduringtheconsultationprocessforthisFifthProgrammehavedrawnattentiontothegreatmultiplicityofavenuesofappealfromthesebodies,andtheconfusionthatthisgenerates.Questionspertainingtorelatedissues,suchasthestandardofprooftobeapplied,andaccesstolegalrepresentation,mayalsobeexamined.

1.04 Thisprojectwillthereforeexaminethecaseforareformedsystem,includingtheapproachtoevidentialmattersandsimplifyingtheavenuesofappealtothecourtsfromsuchbodies.TheCommissionnotesthatsignificantreformshavebeenenactedintheUKintheTribunals,CourtsandEnforcementAct2007,whichimplementedthemajorityoftherecommendationsinthe2001LeggattReport.2The2007Actlaysdownasinglebasisforappealsfromthequasi-judicialbodieswithinitsscope,andtheprojectwillexaminetowhatextentthismaybeausefulreformmodelforthisjurisdiction.TheCommissionisconsciousthatotheraspectsofthereformsintheUK2007Act,notablytheconsolidationofthevariousbodiesintoasingletribunalstructurewithuniformpowersandprocedures,maypresentconstitutionalquestionsinIrelandunderArticles34and37.TheCommissionwillhaveregardtotheseimportantquestionsindevelopingtheproject,andwillalsoreviewrelevantreformsinjurisdictionsotherthantheUK.

1ReportonConsolidationandReformofAspectsoftheLawofEvidence(LRC-1172016),AppendixA.2SirAndrewLeggatt,TribunalsforUsers:OneSystem,OneService(2001).


4

2. ARegulatoryFrameworkforAdultSafeguarding

1.05 InaSeanaddebateonaPrivateMember’sBill,theAdultSafeguardingBill2017,theMinisterforHealthstatedthattheGovernmentagreedthattherewasaneedforanappropriatestatutoryframeworkforthesafeguardingofvulnerableorat-riskadults.TheDepartmentofHealthandanumberofotherbodiesalsomadedetailedsubmissionsrequestingtheCommissiontoincludethismatterintheFifthProgramme.

1.06 TheCommissionhaspreviouslycompletedworkinthisgeneralarea,includingthe2006report3whichrecommendedthereplacementoftheadultwardshipsystemwithlegislationonadultcapacitybasedonafunctionaltestofcapacity,largelyreflectedintheAssistedDecision-Making(Capacity)Act2015.

1.07 Indevelopingthisproject,theCommissionwill(takingaccountofanyparallelworkinthisarea)considerarangeofmatters,including:

(1) co-ordinationofanynewproposedpowersofexistingornewbodieswithotherregulatoryandoversightbodies,suchastheHealthInformationandQuality

Authorityonhealthmatters,theCentralBankonfinancialmattersandtheDepartmentofEmploymentAffairsandSocialProtectiononsocialwelfarematters;

(2) powersofentryandinspection,inparticularthequestionofbeingabletogainaccessnotonlytocommercialpremisesbutalsotoaprivatedwelling;

(3) otherpowers,suchasthoseconsideredbytheCommissioninitsFourthProgrammeprojectonRegulatoryPowersandCorporateOffences,onwhichtheCommissionpublisheditsReportin2018,4and

(4) accesstosensitivedata,includingfinancialinformation.

3ReportonVulnerableAdultsandtheLaw(LRC83-2006).4ReportonRegulatoryPowersandCorporateOffences(LRC119-2018).


5

3. PrivacyandTechnologyintheDigitalEra

1.08 Thisprojectwillconsideraspectsoftheimpactofthedigitaleraonthelaw.

1.09 TheCommissionwillgiveprioritytoexamininghowtechnologyinthedigitalerahasaffectedtraditionalviewsofprivacy.Inparticular,itwillexploretowhatextenttheCommission’spreviousworkinthisareainthelate1990s,concerningprivacyandsurveillance,5needstobereconsideredinthecontextoftheinternetera,andtowhatextentthisarea(wherethestateand,increasingly,privatesectoractorsareinvolved)hasevolvedintheinterim.TheprojectwillalsotakeintoaccounttheimpactofrecentEUandECHRlaw,whichtheCommissionexaminedunderitsFourthProgrammeinitsprojectonharmfulcommunicationsanddigitalsafety.6

1.10 Theprojectmayalsoexploreotheraspectsoftheimpactoftechnologyonsubstantiveandprocedurallaw.

1.11 Intermsofsubstantivelaw,theprojectmay(takingaccountofanyparallelworkinthisarea,nationallyandinternationally)examineadiscreteareaconcerningthefutureimpactofinterconnecteddigitaldevices–the“InternetofThings”(IoT).Forexample,thedevelopmentofautonomousvehiclesandvesselsislikelytohavesignificanteffectsontheinteractionbetweenroadtrafficlawormaritimeregulationsontheonehand,andproductliabilitylawontheother,andsuchadiscreteprojectcouldthereforeidentifyreformsthatwouldberequiredinthisdevelopingareaoflaw.

1.12 Astoprocedurallaw,theprojectmightalsoexaminethepossibleuseofonlinedisputeresolution(ODR).7WhileODRhasthepotentialtogivegreatereffecttotherightofaccesstothecourtsandtherighttoaneffectiveremedy,thereareconcernsthatanexcessiverelianceonitcouldhaveconsequencesfortherightofaccesstoindependentlegaladviceandthequalityoflegaladjudicationgenerally.

5ReportonPrivacy:SurveillanceandtheInterceptionofCommunications(LRC57-1998).6ReportonHarmfulCommunicationsandDigitalSafety(LRC116-2016).7TheCommissionisconsciousthat,in2017,theDepartmentofJusticeandEqualitypublishedtheGeneralSchemeofaCourtsandCivilLaw(MiscellaneousProvisions)Billthat,amongothermatters,proposestoempowertheRulesofCourtscommitteestomakeprovisionforeFilingandotherelectronicprocessesincivilcases.


6

4. StructuredSentencing

1.13 Ireland,bycontrastwithmanyothercommonlawjurisdictions,hasalargelyunstructuredsentencingsysteminwhichsentencingjudgesenjoyawidemeasureofdiscretioninindividualcases.8Inrecentyears,however,theappellatecourtshavedeliveredaseriesofjudgmentsthathaveprovidedsignificantsentencingguidanceforanumberofoffences.9Inaddition,theJudicialCouncilBill2017proposesthattheJudicialCouncilwouldincludeaSentencingCommitteeempoweredtocollateinformationonsentencing,toconductresearchonsentencingandtopublishsentencingguidance.

1.14 AnumberofsubmissionssuggestedthattheCommissionshouldexaminethisarea.Whilethedevelopmentsalreadymentionedindicatethatotherbodieshaveprovidedimportantguidanceinthisrespectandwillcontinuetodoso,theCommissionnonethelessconsidersthatitcouldprovideusefulcomplementaryanalysis,buildingonitspreviousworkinthisarea.Thisworkhasincludedits1996reportonsentencingingeneral,10its2013reportonmandatorysentences,11anditsprojectonsuspendedsentencesunderitscurrentFourthProgramme.12

1.15 Thisprojectwillthereforeconsidertowhatextentthegeneralprinciplesofsentencing,combinedwithasuitablesentencinginformationdatabase,couldprovidethebasisforastructuredsentencingsystem.Theobjectiveofsuchasystemmightbetoachieveuniformityorconsistencyofapproachratherthanuniformityofoutcomes,whichcouldinvolveacombinationofguidancefromappellatecourtsandtheinformationfromtheSentencingInformationCommitteeoftheJudicialCouncil.TheCommissionwillexamineanumberofmodelsinthisrespect,includingtheSentencingCouncilofEnglandandWalesandthedevelopmentofsentencingguidanceinNorthernIrelandundertheauspicesoftheLordChiefJustice.

8O’Malley,Sentencing:TowardsaCoherentSystem(RoundHall,2011).9SeeforexampleThePeople(DPP)vRyan[2014]IECCA11(firearmsoffences),ThePeople(DPP)vFitzgibbon[2014]IECCA12,[2014]2ILRM116(assaultcausingseriousharm),ThePeople(DPP)vZ[2014]IECCA13,[2014]1IR613(rapeandchildcruelty),ThePeople(DPP)vRoadTeamLogisticSolutions[2016]IECA38(healthandsafety)andThePeople(DPP)vCasey[2018]IECA121(burglary).10ReportonSentencing(LRC53-1996).11ReportonMandatorySentences(LRC108-2013).12IssuesPaperonSuspendedSentences(LRCIP12-2017).TheCommissionintendstopublishitsReportonthisprojectin2019.


7

5. ReviewandConsolidationoftheLawonSexualOffences

1.16 Duringthepublicconsultationprocess,theCommissionreceivedalargenumberofsubmissionsconcerningtheneedtoreviewspecificaspectsofsexualoffenceslawandfortheconsolidationofthelaw.

1.17 Astothespecificaspectsofthelaw,theprojectwillexamine:

(1) thedefinitionofrape;

(2) sexualhistoryevidence;

(3) whetherthedoctrineofrecentcomplaintoughttobeabolished;

(4) thediscretionarycorroborationwarning;

(5) theanonymityofaccusedpersonsinsexualassaultcases;

(6) whethertrialsforsexualassaultshouldbeheardotherwisethaninpublic;

(7) thehighattritionrateinsexualoffencescases,andwhetherproceduralandother

reformscouldhaveanimpactonthis;and

(8) separatelegalrepresentationforcomplainants.

1.18 Astoconsolidation,whiletheenactmentoftheCriminalLaw(SexualOffences)Act2017hasprovidedforsignificantreform,13itdidnotinvolvecompleteconsolidationofthelaw,anditremainsthecasethatsomesexualoffencesonthestatutebookdatebacktothe19thcentury.

1.19 BothaspectsofthisprojectwilltakedueaccountofrelevantworkbytheDepartmentofJusticeandEqualityinrelationtosexualoffences.

13ThisActwasfurtheramendedbytheCriminalLaw(SexualOffences)(Amendment)Act2019.


8

6. Perjury

1.20 Thelawofperjuryisatpresentacommonlawoffencesubjecttovariousancillarymattersprovidedforinanumberofancientstatutes,suchasthePerjuryAct1586andthePerjuryAct1729.Morerecentlegislationhasalsoprovidedforcontext-specificoffences,suchassection25oftheCivilLiabilityandCourtsAct2004,whichprovidesforanoffenceofgivingfalseormisleadingevidenceinpersonalinjurycases.

1.21 TheCommissionpreviouslyreferredtothelawofperjuryinits1990reportonoathsandaffirmations,14andwhileitdidnotmakeanyrecommendationsforreformhavingregardtothescopeofthatreportitacknowledgedthatitmightbedesirabletorestatethelawinmodernlanguageandwithsuitablyupdatedpenalties.

1.22 AnumberofsubmissionstotheCommissionsuggestedtheneedforareviewofthelawofperjury.Amodernstatementofthelawofperjury,includingacleardefinitionandupdatedpenalties,wouldbringimportantclarificationtothelaw.TheCommissionisconsciousthatthisareaoflawhasbeensubjecttoreviewandreforminanumberofothercommonlawjurisdictions,andwillhaveregardtothesedevelopmentsindevelopingthisproject.

14ReportonOathsandAffirmations(LRC34-1990),p.21.TherecommendationsinthatReportweresubsequentlyincorporatedintotheCommission’sReportonConsolidationandReformofAspectsoftheLawofEvidence(LRC117-2016).


9

7. CompensatingVictimsofCrime

1.23 TheCriminalInjuriesCompensationSchemewasestablishedonanon-statutorybasisin1974,primarilytoaddresstheneedsofvictimsofcrimewhowouldotherwisebeunabletoobtaincompensationinacivilclaimagainsttheoffender.Itwasamendedin1986inasignificantrespectbyconfiningitsscopetocompensationforspecialdamages(quantifiableloss,suchaslossofwages)andexcludingcompensationforgeneraldamages(damagesforthepainandsufferinginvolved).

1.24 ThisprojectwillexaminewhethertheSchemeisinneedofreform,particularlyhavingregardtoIreland’sobligationstocompensatevictimsofcrimeunderDirective2004/80/ECrelatingtocompensationtocrimevictims.TheprojectwillexaminewhethertheSchemeshouldbeamendedtoincludeclaimsforgeneraldamagesexperiencedbythevictim,andanyotheraspectsthatmayrequirereform.

1.25 AnumberofsubmissionsreceivedbytheCommissionraisedconcernsabouttheoperationoftheSchemeinthecontextofsexualcrimes.Forexample,theSchemeprovidesthatavictimisnotentitledtocompensationwhereheorsheiscohabitingwiththeoffender,whichislikelytoexcludemanyvictimsofsexualviolence.Italsoprovidesthatnocompensationispayablewherethevictimwasinsomewayresponsibleforthecrime,includingbywayofprovocation,whichmayexcludevictimsofdomesticviolence.SubmissionshavealsoraisedconcernsabouttheinteractionbetweentheSchemeandsection6oftheCriminalJusticeAct1993,whichprovidesaprocedurewherebyacriminalcourtmayorderanoffendertopaycompensationtothevictiminrespectofanypersonalinjuryorlossresultingfromtheoffence.


10

8. RegulationofDetentioninGardaCustody

1.26 Atpresent,detentioninGardacustodyisprincipallyregulatedbytheCriminalJusticeAct1984andrelevantRegulationsmadeunderthe1984Act,suchastheTreatmentofPersonsinCustodyinGardaSíochánaStationsRegulations1987,theElectronicRecordingofInterviewsRegulations1997andtheSuspensionofDetentionundersection4(3A))Regulations2011.

1.27 SubmissionstotheCommissionhavesuggestedthatthecurrentlegislationmaynotbecompliantwithemergingconstitutionalrequirementsorthoseundertheEuropeanConventiononHumanRights(ECHR).Thishasthepotentialtohindertheeffectiveoperationofthecriminaljusticesystem,includingthecriminaltrialprocess,andthuspresentssignificantriskstotherightsofdetaineesandofvictimsofcrime,andtothepublicinterestintheeffectiveoperationofthecriminaljusticesystem.

1.28 ThisprojectwillthereforeexamineanumberoflegalissuesconcerningpersonswhohavebeenarrestedinrelationtoacriminaloffenceandwhoaredetainedinGardacustody.Theissueswillinclude:thescopeoftherightofaccesstoalawyer;theprovisionofinformation;theprovisionofmedicalassistance;thequestionofconsularassistanceforforeigndetainees;andtheprovisionofatranslatororinterpreter.TheprojectwillexaminetheseissueshavingregardtotherelevantprovisionsoftheConstitutionandtheECHR.TheprojectwillalsotakeaccountofrelevantEUDirectives,namelythosewhichtheStatehasexerciseditsoptiontoadopt,aswellasthosewhichtheStatemaychoosetoadoptinthefuture.TheprojectwillalsotakeaccountoftheworkoftheCommissionontheFutureofPolicing.

1.29 Thisprojectwillalsoconsiderthepresentstatutoryarrangementsinrelationtootherformsofdetention,andwillevaluatewhetherconsolidation,oranefforttomakethepowersrelatingtothevariousformsofdetentionmoreuniform,shouldbeconsidered.


11

9. CapsonDamagesinPersonalInjuriesLitigation

1.30 AnumberofsubmissionssuggestedthattheCommissionexamineaspectsofcivilliabilityinpersonalinjuriesclaims,includingthelevelofdamagesinsuchcases.TheCostofInsuranceWorkingGroup15andthePersonalInjuriesCommission16havebeenexaminingawiderangeofissuesconcerningthecostofmotor,employerandpublicliabilityinsurance,andthishasincludedaspectsoftheawardofdamagesinsuchcases.Havingregardtothegeneralsubmissionsreceived,andtoarequestfromtheWorkingGroupandtheDepartmentofJusticeandEquality,theCommissionwillexaminewhetheritisappropriatetolegislateforacaptobeplacedonthelevelsofdamageswhichacourtmayawardinrespectofsomeorallcategoriesofpersonalinjuryclaims.

1.31 TheCommissionhaspreviouslyexaminedthisarea,17includinginits2000reportwhichrecommendedthatthelawondamagesshouldbedevelopedprimarilybycaselaw.18Thecourtshave,inaseriesofcases,includingSinnottvQuinnsworthLtd,19YunvMotorInsurersBureauofIreland20andShannonvO’Sullivan,21laiddownwhathavebeendescribedas“caps”or“tariffs”ongeneraldamages(damagesforpainandsuffering),whichtakeaccountoftheinjuriessufferedbyaplaintiffandinsomeinstancesthelevelofspecialdamagesawarded(forexample,forlossofearningsandmedicalcarecosts).Thesecapsortariffshavebeenadjustedbythecourtsovertheyears,takingaccountofgeneraleconomicconditionsandmedicalcostsinflation.Thecurrentprojectwillconsider,havingregardtothecurrentroleofthecourtsinthisarea,whetheritwouldbeconstitutionallypermissibleorotherwisedesirabletoprovideforastatutoryregimethatwouldplaceacapondamagesinpersonalinjuriescases.Theprojectwillalsohaveregardtodevelopmentsinrelatedaspectsofthelawondamages,suchastheprovisionforPeriodicPaymentOrdersundertheCivilLiability(Amendment)Act2017,andtodevelopmentsinothercomparablejurisdictions.

15Seehttp://www.finance.gov.ie/what-we-do/insurance/the-cost-of-insurance-working-group/.16Seehttps://dbei.gov.ie/en/Who-We-Are/Department-Structure/Commerce-Consumer-and-Competition-Division/Personal-Injuries-Commission/Personal-Injuries-Commission.html.17ReportonAggravated,ExemplaryandRestitutionaryDamages(LRC60-2000).18AsimilarviewwastakenbytheLawCommissionforEnglandandWalesinits1998ReportDamagesforPersonalInjury:Non-PecuniaryLoss(LawComNo.257).19[1984]ILRM253.20[2009]IEHC318.21[2016]IECA93.


12

10. ProtectiveCostsOrders

1.32 Anumberofsubmissionshavesuggestedthataccesstojusticethroughthecourtsinthecontextofcivillitigation(otherthanthelimitedrangecoveredbytheCivilLegal Aid Act1995)hasbecomeincreasinglydifficultformanyindividualsowingtotheprohibitivecostsinvolved,andthatageneralsystemofProtectiveCostsOrders(PCOs)mayassistinalleviatingthis.TheusualruleincivillitigationinIrelandisthat“costsfollowtheevent”,thatis,thattheunsuccessfulpartymustpaythesuccessfulparty’scosts(andtheirowncosts);butthisruledoesnotapplyuntilthecasehasbeendecidedincourt,orsettled.Individualsarethereforeusuallyrequiredtofundaclaimfromtheirownresources,withtheaddedriskthatiftheyareunsuccessfultheywillberequiredtopaytheotherparty’slegalcostsalso.Ithasthereforebeensuggestedthatthecostsinvolvedincivillitigationdetermanyindividualsfrominitiating,ordefending,proceedings.

1.33 PCOsystemscantakeavarietyofforms,butusuallyacttoprotectonepartyfrombearinganotherparty’scostsintheeventthattheyareunsuccessful,areversaloftheusualrulethatcostsfollowtheevent.SomePCOschemesprohibitapartyfromclaimingtheircostseveniftheyaresuccessful,othersaresilentonthisissue,whilestillothersallowthepartytorecovertheircostsintheeventthattheyaresuccessful.AformofPCOwasputonastatutoryfootinginIrelandundertheEnvironment(MiscellaneousProvisions)Act2011inrespectofalimitednumberofcasesthatfallwithintheUNECEConventiononAccesstoInformationontheEnvironment(theAarhusConvention),asimplementedinDirective2003/35/EC(theamendingEIADirective).ThisprojectwillexaminethecasefortheintroductionofawiderstatutoryschemeforPCOs,takingaccountofthedevelopmentofsucharrangementsinotherjurisdictions.


13

11. LiabilityofHotelsandRelatedEstablishments

1.34 TheHotelProprietorsAct1963replacedthecommonlawdutiesofhotelproprietorswithastatutorycode,andalsoimplementedthe1962CouncilofEuropeConventionontheLiabilityofHotel-keepersconcerningthePropertyoftheirGuests.

1.35 The1963Actprovidesthat,subjecttocertainexclusions(suchasformotorvehiclesparkedinthehotelpropertybystayingguests),thehotelisstrictlyliableforthedamage,lossordestructionofaguest’sproperty.Liabilityunderthisstrictliabilityruleislimitedto€127(£100),whichhasnotbeenalteredsince1963.

1.36 The1963Actalsoreplacedthecommonlawdutyofhotelkeeperstochargeonly“reasonable”priceswithadutytoprovideaccommodation,foodanddrink“atthechargesforthetimebeingcurrentatthehotel.”Thisprovisiondoesnotappeartoreflecttherealityofhotelpricesintheseconddecadeofthe21stcentury,wherethevastmajorityofhotelroomsarebookedonline,withalgorithmsandspecificfactorssuchastheoccurrenceofamajorsportingorotherpubliceventplayingaprominentroleindeterminingthepricetobecharged.

1.37 Theprojectwillexaminetowhatextentthe1963Actisinneedofreformhavingregardtodevelopmentssinceitsenactment.Thisincludes:theeffectofinflationsincethefinanciallimitof€127onthestrictliabilityregimewassetin1963;theimpactofonlinebookingonthedutyconcerningcharges;whetherthe1963Actshouldbeextendedtoguesthouses,hostels,traditionalbedandbreakfastestablishmentsandcomparableonline-erashort-termlettingarrangements;andtheeffectofgeneralcivilliabilitylegislationenactedsince1963,includingtheOccupiers’LiabilityAct1995andtheEqualStatusAct2000.


14

12. LiabilityofUnincorporatedAssociations

1.38 The2017decisionoftheSupremeCourtinHickeyvMcGowan22hasidentifiedtheneedforareviewofthecivilliabilityofunincorporatedassociations.Theplaintiffallegedthathehadbeensexuallyabusedbetween1968and1972byamemberoftheMaristOrderofReligiousBrothers,anunincorporatedbody.TheCourtheldthat,whiletheplaintiffwasentitledtoseekandobtainjudgmentagainstindividualswhoweremembersoftheOrderbetween1968and1972onthegroundsoftheirvicariousliabilityasagroup,hecouldnotobtainjudgmentagainsttheOrderassuch.ThelikelyeffectofthiswasthattheplaintiffwouldnotobtainjudgmentagainstthecurrentassetsoftheOrder.

1.39 ThedecisionintheHickeycasereflectsthelong-establishedcommonlawviewthatanunincorporatedbody,whichalsoincludesmanysportingclubs,hasnoseparatelegalcharacterdistinctfromitsmembers.Thus,inMurphyvRocheandOrs,23theHighCourtheldthattheplaintiff,amemberofaGAAclubwhofellandinjuredhimselfatadanceontheclub’spremises,couldnotsuetheclubbecausehewould,ineffect,besuinghimself.IthasbeensuggestedthatthisexclusionfromcivilliabilityofunincorporatedassociationsisdifficulttoreconcilewiththerighttoequaltreatmentunderArticle40.1oftheConstitutionandtherightofaccesstothecourtsunderArticle40.3andunderArticle6oftheEuropeanConventiononHumanRights.24Bycontrast,criminalliabilitymaybeimposedonanunincorporatedclub,atleastinrespectofstatutoryoffences.Thus,inDirectorofPublicProsecutionsvWexfordFarmersClub,25theHighCourtheldthatthedefendantclubcouldbeconvictedforanoffenceundertheIntoxicatingLiquorAct1988,whichappliestoa“person”andwhichwasdefinedintheInterpretationAct1937(andnowintheInterpretationAct2005)asmeaningbothacorporatebodyandanunincorporatedbodyofpersons.

1.40 Theprojectwillthereforeaddress:whetherandwhenseparatelegalpersonalitymaybeascribedtounincorporatedassociations;andwhethermembersshouldbeabletosuetheirownunincorporatedassociations,includingsportsclubs.Theprojectmayalsoaddresswhetherthereisaneedforgreaterclarityastothecriminalliabilityofunincorporatedbodies.

22[2017]IESC6,[2017]2IR196.23[1987]IR656.24SeeMcMahonandBinchy,LawofTorts4thed(Bloomsbury,2013)atpara39.25.25[1994]2ILRM295.


15

13. AspectsoftheLawofEvidence

1.41 TheCommission’s2016ReportonConsolidationandReformofAspectsoftheLawofEvidence26madewide-rangingrecommendationsforreformof3majorareasofthelawofevidence(hearsay,documentaryevidenceandexpertevidence)aswellasfortheconsolidationofallexistingpre-1922andpost-1922EvidenceActs(18intotal).AnumberofsubmissionsreceivedbytheCommissionarguedtheneedtocontinuetoreviewotheraspectsofthelawofevidence,andthisprojectwillexamine2areas,badcharacterevidenceandthelawofprivilege.

(a) BadCharacterEvidence

1.42 Thelawconcerningbadcharacterevidence,alsotermed“misconductevidence,”“backgroundevidence”or“similarfactevidence”,referstotheintroductionofevidence,notablybytheprosecutioninacriminaltrial,ofsomepreviousdishonourableordisreputableconductonthepartoftheaccused,beitcriminalorotherwise.Thetraditionalcommonlawruleisthatsuchevidenceisnotadmissiblewhereitisintroducedforthepurposemerelyofdemonstratingthattheaccusedisapersonofgeneralill-reputeandisthereforemoredisposedtowardscriminality.TherulewasaddressedbytheSupremeCourtin2011inThePeople(DPP)vMcNeill27andwhiletheCourtclarifieditsapplicationtotheextentthatitconcernedtheintroductionof“backgroundevidence”itwasalsonotedthatthelawwouldbenefitfromacomprehensivereview,whichcouldtakeaccountofthecaselawontheareathathasbeenbuiltupinIrelandandinotherjurisdictions,andalsoofrelevantcontemporarylearninginthefieldofpsychologyandsociology.28

(b) Privilege

1.43 AnumberofsubmissionssuggestedthattheCommissionshouldalsoexaminethelawofprivilege.Itwasnotedthatthepresentlawreflectsoldervaluesastothekindsofrelationshipsthathaddevelopeduptothe19thcentury.TheCommissionwillassesstowhatextentthelawneedsreassessment,includingforexamplehowcounsellingcommunicationsshouldbedealtwith.WhilethishasbeenaddressedtosomeextentintheCriminalLaw(SexualOffences)Act2017,thewidercontextofthelawofprivilegeremainstobeaddressed.

26ReportonConsolidationandReformofAspectsoftheLawofEvidence(LRC117-2016).27[2011]IESC12,[2011]2IR669.28[2011]IESC12,[2011]2IR669,atpara169(O’DonnellJ).


16

14. AspectsofFamilyLaw

1.44 SubmissionsreceivedbytheCommissionidentifiedtheneedtoaddressspecificaspectsoffamilylaw,notablythelawofdivorce,andthisprojectwilladdress2areas,properprovisionondivorceandtherecognitionofforeigndivorcesandmarriages.

(a) ProperProvisiononDivorce

1.45 Article41oftheConstitutionprovidesthat,inadivorcecase,acourtmustdeterminewhetherproperprovisionhasbeenmadeforthespousesinvolved,andthisrequirementisalsoreflectedintheFamilyLaw(Divorce)Act1996.Considerablecaselawhasarisenonthisissue,andwhilethe1996Actprovidesforcertainmatterstobetakenintoaccount,thedeterminationof“properprovision”remainsprimarilyamatterforjudicialdiscretion.Amongtheissuesthathavegivenrisetodebateinthecaselawistheextenttowhichongoingpaymentsorlumpsumawardsmaybemade:see,forexample,theSupremeCourtdecisioninTvT.29Theprojectwillconsidertowhatextentanyfurtherguidancemaybeprovidedinordertoensureaconsistencyintheapproachtakentotheexerciseofthisjudicialdiscretion,inparticulartoassistspousestoreachsettlementsandresolvedisputesmoreefficientlyandatlowerfinancialorcost.

(b) ForeignDivorces

1.46 SeveralsubmissionstotheCommissionraisedconcernsabouttheuncertaintysurroundingthebasisfortherecognitionofforeigndivorces.InHvH,30theSupremeCourtheldthatthecurrenttestwasbasedonwhetheroneofthespouseswasdomiciledintheforeignjurisdiction,asopposedtooneofthespousesbeinghabituallyresidentinthatjurisdiction.Thedeterminationof“domicile”includesanassessmentoftheintentionofthepersontoremainintheforeignjurisdiction,whichhasprovedcomplextodetermineinsomeinstances,whereasatestofhabitualresidencecanbedeterminedbyfactualcircumstancesalone,whichmaybelesscomplex.TheSupremeCourtconsideredthatthetestcouldbechangedbylegislation,andthisprojectwillthereforeconsiderwhetherthecurrenttestshouldbereformed.31Inaddition,theprojectmayalsoexamineissuesrelatingtotherecognitionofforeignpolygamousandproxymarriages,whichtheSupremeCourtinHAHvSAA&Ors32alsosuggestedwouldbenefitfromfurtherreview.

29[2002]IESC68,[2002]3IR334,at364.30[2015]IESC7,[2015]4IR560.31Inits1985ReportonRecognitionofForeignDivorcesandLegalSeparations(LRC10-1985),theCommissionrecommendedtheintroductionofaresidency-basedrequirement,ratherthanoneofdomicile.32[2017]IESC40.


17

15. AspectsofLandandConveyancingLaw

1.47 TheCommission’s2005reportonreformandmodernisationoflandandconveyancinglaw,33whichincludedadetaileddraftBill,ledtotheenactmentoftheLandandConveyancingLawReformAct2009.Anumberofsubmissionsreceivedindicatedtheneedtoreviewsomemattersnotaddressedinthe2009Actorwhichrequirefurtherexamination.Thisprojectwillexamine2aspectsofthisareaoflaw,adversepossession(notaddressedinthe2009Act)andprescriptiveeasements(addressedinthe2009Act).

(a) AdversePossession

1.48 TheCommission’s2005reportanddraftBillhadaddressedadversepossessionbutthe2009ActdidnotincludetheseprovisionsonthebasisthattheyrequiredfurtherconsiderationinlightofthedecisionoftheGrandChamberoftheEuropeanCourtofHumanRightsinJAPye(Oxford)LtdvUnitedKingdom.34Theprojectwillre-examinethisarea,talkingaccountoftheanalysisinthe2005reportandalsodevelopmentssincethedecisioninthePyecase.35

(b) PrescriptiveEasements

1.49 Thesubmissionsreceivedindicatedthatsomeelementsofthereformsinthe2009Actconcerningprescriptiveeasements,notablytheregistrationrequirements,havecreateddifficultiesinpractice.Aprescriptiveeasementisoneacquiredthroughlonguseorenjoyment,suchasarightofway.Giventhehighnumberofsucheasements,itisimportantthatthelawinthisarearemainsclear.Theprojectwillthereforeexaminewhetherthe2009Actmayneedtobeamendedtopreventanyongoingconfusion,andtopreventanyuncertaintyconcerningtheambitoftherightsinvolved.

33ReportonReformandModernisationofLandLawandConveyancing(LRC74-2005).34(2007)46EHRR1083.35See,forexample,DunnevIarnródÉireann-IrishRail[2016]IESC47,[2016]3IR167,atpara.23(LaffoyJ)andWylie,“AdversePossession–StillanAilingConcept?”(2017)58IrJur1.


19

PART2

BACKGROUNDTOTHEDEVELOPMENTOFTHEFIFTHPROGRAMME

2.01 InthisParttheCommissionsetsoutthebackgroundtothedevelopmentoftheFifthProgramme.

TheCommission’sfunctions

2.02 TheLawReformCommissionisanindependentstatutorybodyestablishedbytheLawReformCommissionAct1975(the1975Act).The1975ActprovidesthattheCommission’sroleistokeepthelawunderreviewandtoconductresearchwithaviewtothereformofthelaw.LawreformisdefinedundertheActtoinclude:

• thedevelopmentoflaw

• itscodification(includingitssimplificationandmodernisation),and

• therevisionandconsolidationofstatutelaw.

2.03 TheCommission’slawreformroleiscarriedoutprimarilyunderaProgrammeofLawReform.TheCommissionalsoworksonspecificmattersreferredtoitbytheAttorneyGeneralunderthe1975Act.Sinceitwasestablished,theCommissionhaspublishedover200documents(WorkingPapers,ConsultationPapers,IssuesPapersandReports)containingproposalsforlawreformandtheseareallavailableontheCommission’swebsite,www.lawreform.ie.About70%oftheseproposalshavecontributedinasignificantwaytothedevelopmentandenactmentofreforminglegislation.

2.04 TheCommission’sAccesstoLegislationworkmakeslegislationinitscurrentstate(asamendedratherthanasenacted)moreeasilyaccessibletothepublicinthreemainoutputs:theLegislationDirectory,RevisedActsandtheClassifiedList.TheLegislationDirectorycompriseselectronicallysearchableindexesofamendmentstoprimaryandsecondarylegislationandimportantrelatedinformation.RevisedActsbringtogetherallamendmentsandchangestoanActinasingletext.TheCommissionprovidesonlineaccesstoover100RevisedActsthatwereenactedbefore2005andtoalltextuallyamendedActsenactedfrom2005onwards(otherthanFinanceandSocialWelfareActs).TheClassifiedListisaseparatelistofallIn-ForceActsoftheOireachtas(andstatutoryinstrumentsmadeunderthem)organisedunder36majorsubject-matterheadings.


20

ProgrammesofLawReform

2.05 Inaccordancewiththe1975Act,aProgrammeofLawReformispreparedbytheCommission,inconsultationwiththeAttorneyGeneral,andcontainsaspecificnumberofareasoflawthatrequireexaminationwithaviewtotheirreform.WhenaProgrammeofLawReformisapprovedbytheGovernment,theCommissionexaminesandresearchesthesubjectssetoutinitand,ifappropriate,formulatesproposalsforthereformofthelawinthoseareas.TheCommission’sFirstProgrammeofLawReformwasinplacebetween1977and1999.TheSecondProgrammeofLawReformranfrom2000totheendof2007.

2.06 TheThirdProgrammeofLawReformranfrom2008andwasclosetocompletionin2012.TheCommissionthereforeconcludedthatpreparationsshouldbeginin2012onthedevelopmentofaFourthProgrammeofLawReform,whichwasapprovedbyGovernmentinOctober2013.Bymid-2017,theCommissionhadeithercompletedormadesignificantprogressontheprojectsintheFourthProgrammeandtheCommissionthereforebegantheconsultationprocessthatledtotheformulationofthisFifthProgrammeofLawReform.

Subject-MatterofProjectsExaminedDuringLifetimeofFourthProgramme

2.07 SincebeginningworkontheFourthProgrammeofLawReforminOctober2013totheendof2018,theCommissionhadpublished21documents–IssuesPapersandReports–containingproposalsforlawreformcoveringthespecifictopicsintheProgrammeaswellasinresponsetorequestsfromtheAttorneyGeneraltoexaminespecificareasoflawunderthe1975Act.Thegeneralsubjectareasaddressed,orbeingaddressed,includethefollowing:

CivilLiabilityandCommercialLaw

• PreventionofBenefitfromHomicide

• PrivilegeforCourtReportsundertheDefamationAct2009

CourtsandCourtsService

• ContemptofCourt

CriminalLawandProcedure

• DisclosureandDiscoveryinCriminalCases

• KnowledgeorBeliefConcerningConsentinRapeLaw

• SuspendedSentences


21

CriminalLawandRegulatoryPowers

• RegulatoryPowersandCorporateOffences

• HarmfulCommunicationsandDigitalSafety

InternationalLaw

• TheDomesticImplementationofInternationalObligations

LandLawandSuccession

• Section117oftheSuccessionAct1965:AspectsofProvisionforChildren

• CompulsoryAcquisitionofLand

LegislationandtheStatuteBook

• Accessibility,ConsolidationandOnlinePublicationofLegislation

DevelopmentoftheFifthProgramme

2.08 TheCommissionoutlinesbrieflyherethecontextwithinwhichtheFifthProgrammeofLawReformwasdeveloped.Inthisrespect,theCommissionengagedinawide-rangingconsultationprocesssothattheProgrammewouldreflectcurrentandanticipatedneedsofIrishsociety.

ThecontextfortheFifthProgramme

2.09 InpreparingtheFifthProgramme,theCommissionconsideredthatitscontentshouldtakeaccountofrelevantreform-relateddevelopmentsbothnationallyandinternationally,including:

• theGovernment’scommitmenttotheimplementationofaprogressivelawreformprogrammeinitsProgrammeforaPartnershipGovernment(2016);

• thewidercontextofregulatoryreform,includingtheembeddingofpre-legislative

scrutinyofSchemeofBillsanddetailedscrutinyofPrivateMember’sBillsbyOireachtasCommittees,withwhichtheCommissionhasbeenhappytoengagewhereitinvolvesitsresearchwork;

• internationalfocusontherolethatlawreformandlegislativerevisionandconsolidationcanplayineconomicrecovery,discussedintheOECD’s2010ReportonRegulatory

ReforminEurope:Ireland;


22

• ongoingdebateconcerningtheimportanceofinternationalstandards,includinghumanrightsstandards;and

• thepotentialimpactthatBrexitmayhaveonlawreform.

CriteriausedtoselectprojectsfortheFifthProgramme

2.10 InapproachingthequestionastowhatprojectsshouldbeincludedintheFifthProgramme,theCommissionusedthefollowingselectioncriteria:

(a) Publicbenefit–projectsmustmeetarealcommunityneedbyprovidingaremedyforadeficiencyorgapinthelaw,includingtheneedtomoderniseanoutdatedlaw.

(b) Suitability–projectsshouldbesuitableforanalysisbythelegalexpertiseavailableintheCommission,supplementedbyappropriateconsultationwithother

professionalsandinterestedparties.

(c) Mixofprojectsandresources–theProgrammeshouldincludeamixofnarrow-focus

projectsandwider-focusprojectsthatarerelevanttosociety,sothattheCommission’sresourcesarenottiedupinoneproject.

(d) Avoidduplication–projectsshouldnotoverlapwiththeworkofotherbodiesengagedinlawreformactivities,butshouldcomplementsuchworkwhereappropriate.

Consultationprocess

2.11 TheCommission’spublicconsultationprocessontheFifthProgrammebeganinJune2017andextendedtoJanuary2018.

2.12 InJune2017,thethenPresidentoftheCommission,MrJusticeJohnQuirke,sentletterstoawiderangeofpublicbodiesandNGOsinvitingsubmissionsontheFifthProgrammeofLawReform.Amongthebodieswere:

• Barnardos

• CentralBankofIreland

• FreeLegalAdviceCentres(Flac)

• GovernmentDepartments(16SecretariesGeneral)

• IrishBusinessandEmployersConfederation(IBEC)

• IrishCongressofTradeUnions(ICTU)


23

• IrishHumanRightsandEqualityCommission(IHREC)

• IrishPenalReformTrust(IPRT)

• LawCommissionsofEngland/Wales,ScotlandandJersey

• LawSchoolsandFacultiesofThirdLevelInstitutions

• MedicalCouncil

• NursingandMidwiferyBoard

• OfficeoftheDirectorofCorporateEnforcement(ODCE)

• OireachtasCommitteeonJusticeandEquality

• Ombudsman

• OmbudsmanforChildren.

2.13 AlsoinJune2017,theCommissionpostedageneralnoticeonitswebsite,www.lawreform.ie,invitingsubmissionsforconsiderationforinclusionintheFifthProgrammeofLawReform.Thisnoticewascopiedbyanumberofonlinediscussionforumsandblogs.

2.14 Thelettersandwebsitenoticewereintendedtoprovidethewidestopportunityforallinterestedpartiestoengageinthelawreformprocessandtosuggestareasoflawthatrequirereform.

2.15 TheCommissionmadeextensiveuseofitswebsitetopublicisetheconsultationprocessfortheFifthProgramme.Inadditiontothepublicconsultationsdiscussedbelow,theCommissioninvitedsuggestionsforlawreforminwrittenororalformat.Adedicatedemailaddress,[email protected],wascreatedandthemajorityofsubmissionsweresubmittedtotheCommissionviathiscontactpoint.TheCommissionstressedthattherewasnorequiredformatformakingasubmissionandthattherewasnorequirementtousetechnicallegallanguage.Thiswastoencouragesubmissionsfrommembersofthepublicandtoensurethattheconsultationprocesswasasbroadaspossible.ThedetailsofthepublicconsultationswerepublicisedontheCommission’swebsite,theBarCouncilwebsite,theLawSocietywebsiteandotherlegalnetworksites.

2.16 Duringthesecondhalfof2017andintoJanuary2018,theCommissionalsoheldaseriesof5consultativemeetingsthroughoutthecountryseekingviewsontheprojectsthatmightbeincludedintheFifthProgrammeofLawReform.Thesewereasfollows:

• 11thOctober2017:UniversityofLimerick;


24

• 1stNovember2017:DublinCastle,theCommission’s2017AnnualConference(seefurtherbelow);

• 22ndNovember2017:NUIGalway;

• 10thJanuary2018:DundalkInstituteofTechnology;

• 31stJanuary2018:UniversityCollegeCork.

2.17 TheCommission’s2017AnnualConference,heldinDublinCastleon1stNovember2017,focusedonthedevelopmentoftheFifthProgrammeofLawReform.TheConferencespeakersaddressedthewidesocialandeconomicsettingforthedevelopmentofanewProgrammeofLawReform.Thespeakerswere:

• MrJusticeFrankClarke,ChiefJustice,

• MsDearbhailMcDonald,GroupBusinessEditor,IndependentNewsandMediaand

• SenatorMichaelMcDowellSC,formerAttorneyGeneralandformerMinisterforJusticeandEquality.

2.18 TheCommissionalsoheldmeetingswithanumberofindividualsandrepresentativegroups,includingthosewhohadmadewrittensubmissionsastopossibleprojectstobeconsideredforinclusionintheFifthProgramme.

2.19 DuringtheconsultationperiodfromJune2017onwards,theCommissionreceived70writtensubmissions(seetheAppendix)suggestingmorethan126areasoflawforinclusionintheFifthProgramme.AllsubmissionswerefullyconsideredbytheCommissionagainsttheselectioncriteriasetoutabove.

DiscussionbyAttorneyGeneral’sConsultativeCommittee,byOireachtasJointCommitteeandapprovalbyGovernment

2.20 On25thJuly2018,theCommissionmetwiththeAttorneyGeneral’sConsultativeCommitteeonLawReformtodiscussthe15projectsinthedraftFifthProgrammeofLawReformwhichtheCommissionhadprepared.TheConsultativeCommitteecomprisesrepresentativesofallGovernmentDepartments,theLawSocietyofIreland,theBarCouncilofIrelandandtheCommission.OneofitsfunctionsistoassisttheAttorneyGeneralinconsultationswiththeCommissiononthepreparationofaprogrammeoflawreform.TheConsultativeCommitteediscussedindetailthe15projectsinthedraftProgrammeandexpressedsatisfactionwiththerangeoftopicsincluded.

2.21 ThedraftProgrammewasthenforwardedtotheAttorneyGeneralwhosubmitteditforinitialconsiderationbytheGovernment.TheGovernmentagreedtoforwardthedraftProgrammeforconsiderationbytheOireachtasJointCommitteeonJusticeandEquality.


25

2.22 TheJointCommitteelaidthedraftProgrammebeforetheHousesoftheOireachtas.Atitsmeetingheldon16thJanuary2019,theJointCommitteeconsideredthecontentofthedraftProgrammeandexpresseditsapprovalofthecontentanddidnotproposeanychanges.36

2.23 TheGovernmentsubsequentlydiscussedandconsideredthedraftFifthProgrammeofLawReformatitsmeetingheldon20thMarch2019and,inaccordancewithsection5(1)oftheLawReformCommissionAct1975,approvedtheProgramme.Part1ofthisReportsetsoutanabstractforeachofthe15projectsintheProgrammeasapprovedbyGovernment.

36ReportoftheJointCommitteeonJusticeandEqualityontheFifthProgrammeofLawReform(February2019).

http://opac.oireachtas.ie/AWData/Library3/Final_report_for_publication_-_Fifth_Programme_of_Law_Reform_145159.pdf


27

APPENDIX

LISTOFWRITTENSUBMISSIONS

TheCommissionwouldliketothankallpersonswhoassistedinthedevelopmentofthisFifthProgrammeofLawReform.Inparticular,theCommissionwouldliketothankallthosepersonswhotookthetimetomakesubmissionsandtoattendpublicconsultations.Thefollowingisalistofindividualsandbodieswhomadewrittensubmissions:

AmericanChamberofCommerce

AssociationofConsultingEngineersofIreland

Barnardos

John Brady, TD

KillianBrennan

Lucy-AnnBuckley

JoanCampbell,Barrister-at-Law

CentralBankofIreland

Judge Pauline Codd

Commission for Regulation of Utilities (CRU)

CommunityLawandMediationCentre

VickyConway

COPEGalway

LouiseCrowley

YvonneDaly

DepartmentofChildrenandYouthAffairs

DepartmentofHealth

DepartmentofHousing,PlanningandLocalGovernment

DepartmentofJusticeandEquality

JamesDevenney

Senator Máire Devine

DirectorofPublicProsecutions,Officeofthe


Disability Federation of Ireland

Dublin Rape Crisis Centre

Education Equality

Paul Farrell

Stewart Ferguson

Kieran Fitzpatrick

Free Legal Advice Centres (Flac)

AnnaGiblin

CarmelGoggin,Barrister-at-Law

VincentGriffin

HealthInformationandQualityAuthority

HealthServiceExecutive

IrishCongressofTradeUnions(ICTU)

IrishCriminalBarAssociation

IrishHumanRightsandEqualityCommission(IHREC)

IrishObservatoryonViolenceAgainstWomen

IrishPenalReformTrust(IPRT)

IrishSmallandMediumEnterprisesAssociation

(ISME)IrishTranslators'andInterpreters'

AssociationSenatorColletteKelleher

ShaneKennedy

ShaneKilcommins

MLane&CoSolicitors

LindaLambert

LawSocietyofIreland

LegalAidBoard

SimonMcArdle

PatriciaMcCafferty

MaryMorris

JosephMooney

28


29

Éanna Mulloy SC

National Disability Authority

National Safeguarding Committee

National Women’s Council of Ireland

Claire O'Connor

Liam O'Connor

Páraic Ó Súilleabháin

Ombudsman,Officeofthe

OneFamily

TedO'Shea

KathrynO'Sullivan

Personal Injuries Assessment Board (PIAB)

JoanPower

RapeCrisisNetworkIreland

RoyalInstituteofArchitectsinIreland

Sage Advocacy

SenatorLynnRuane

AnnRyan

LKShieldsSolicitors

SistersofMercy

SocietyofActuariesinIreland

SocietyofCharteredSurveyorsIreland

StandardsinPublicOfficeCommission

BrigidTimmons

Tusla(NationalChildandFamilyProtectionAgency)

MollyWells

LAW REFORM COMMISSION OF IRELAND of Law...proposals for law reform and these are all available at ....

Documents

Transcript of LAW REFORM COMMISSION OF IRELAND of Law...proposals for law reform and these are all available at ....