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Knife to test Court security

This case raises both some legal questions and probably some more worrying questions about Court security.

A Local Authority v D & Ors [2024] EWFC 61 (19 March 2024)

https://www.bailii.org/ew/cases/EWFC/HCJ/2024/61.html

Peel J was dealing with a case in which there was a three day final hearing involving four children and the LA plan for the younger two was adoption. The issue for this hearing and judgment was as to how the mother was going to be able to participate in this hearing, the mother having done something spectacularly unwise previously.

At a day when the case was not being heard in Court, the mother visited Court, passing through security. She went to the first floor toilets and then went back down to security and handed them a knife with a three inch blade and four inch handle, wrapped in plastic and bound in tape. It remains unclear as to how she brought this knife through security. (I can’t help but be reminded of the scene in The Godfather where a handgun is left for Michael Corleone in the cistern in the restaurant toilets to avoid detection when he is frisked – but of course we have no idea)

The mother filed a statement in which she said that she had done this to draw attention to knife crime and the laxness of Court security.

The Court Service (as in the administrative element not the judicial one) carried out a risk assessment and determined that the mother was no longer to be admitted to a Court building. This is under the HMCTS Protocol for Managing Potentially Violent People (“PVP Protocol”). This obviously came under even more focus following a life-threatening assault on a Judge in November 2023.

The mother’s solicitors also conducted their own assessment and concluded that they would not be prepared to have the mother attend their offices to participate in the hearing remotely. That’s also understandable – it is more than just one person agreeing to accept the risk as her representative – there are other lawyers, support staff and other clients and visitors to those offices whose safety has to be considered.

That left Peel J in a difficult situation – HMCS were saying that mother couldn’t come into the Court building (for understandable reasons), the solicitors couldn’t facilitate her coming to their offices for a remote hearing (for understandable reasons) yet the hearing involved her children and the possibility of adoption for which she needed to be able to participate and have her article 6 rights to a fair hearing.

The Court noted that nobody had asked for the HMCS risk assessment but that in any event these were not for public consumption.

No party has asked me for an order that the risk assessment carried out by the Court Service should be disclosed. I did not hear argument on this, but in my judgment, it is hard to see how it could ever be appropriate for a judge to order that such a document be provided to the potentially violent person and/or the parties in general. These are internal risk assessments carried out by, or on behalf of, HMCTS. They are not for public consumption.
On the other hand, a person affected by the assessment is entitled to have some sort of understanding of the basis of the assessment, i.e why a particular measure has been imposed. Here, the rationale for the risk assessment is not difficult to discern as the basic facts, outlined above, are clear. In some cases, the reasoning will be less obvious. It seems to me that it would usually be appropriate for the gist of the reasoning to be given to the affected potentially violent person, whilst taking care to ensure that none of the information provided prejudices or puts in danger a particular source of information. It will be for the potentially violent person, if dissatisfied with the arrangements resulting from the risk assessment, to apply to the court for further consideration of the steps required to enable access to justice. Although in this instance a court hearing was listed to consider the way forward, I would expect that in most cases it can be dealt with swiftly on paper.

Peel J decided that the mother should be permitted to attend Court for the final hearing but under some incredibly rigorous stipulations (note that I am absolutely saying that these are proportionate given the facts of the case – but they are on the face of them, very rigorous)


  1. In this case, given that remote attendance for M is not workable, it seems to me that M must be permitted to enter the court building for hearings provided that the following arrangements are put in place and adhered to:

i) M shall attend the building and be met by her legal representative at security, who should have passed through security before meeting M.

ii) M is not to be accompanied by anybody (for example a friend or associate) in the court building except her legal representatives and security.

iii) M is to go through full security checks, including passing through the arch, being wanded and being patted down.

iv) M’s mobile phone will be removed for the duration of her time in the court building, and returned to her when she leaves.

v) M shall, when not in court for the hearing(s), ordinarily stay in a separate consultation room which will be made available for her and her lawyers. The security staff will stay immediately outside the room.

vi) M is not permitted to take liquids into court.

vii) No fewer than 2 security guards will accompany her at all times save when she attends the toilet. Upon exiting the toilet, she will be thoroughly searched by security, and the toilets thereafter will be checked.

viii) 2 security guards will sit on either side of her in court. She will sit at the back of the court save when she gives her evidence.

ix) When the court hearing or court day finishes, there shall be a staggered exit so that M leaves the court building before anyone else involved in the case.

x) If M refuses to undertake any part of this process, entry may be barred or, if she has already entered, she may be excluded from the building.

  1. I suggested these measures to the parties, who agreed them. The measures have been agreed with the local Court Service. In this respect, I note that (i) the Court Service has a duty to ensure the safety of all court users, (ii) it is the Court Service whose responsibility it is to follow the PVP Protocol and make the risk assessment and (iii) it is the Court Service which has to provide the resources to manage and mitigate the risk. It is not for a judge to make orders against the Court Service. The order I make will record the operative measures as recitals rather than incorporate them as orders. There would be no purpose in making an order which the Court Service is unable to fulfil, and to do so could create confusion, generate delay and perpetuate the risks. There needs to be consultation and cooperation between the Court Service, judiciary and the parties to ensure that access to justice can be provided in as practicable a way as possible.
  2. The measures set out above in my judgment represent a fair balance of the competing rights, particularly under Articles 6 and 8, and a proportionate response to the potential threat.
  3. At the risk of repetition, these measures which I have outlined will not be necessary or appropriate in each case. The facts of this case are unusual. The response to each PVP Protocol incident obviously depends on the circumstances, taking into account local demands, resources and practices.

Note also that the Judge had agreed those measures with the Court Service and was plain that it would not be appropriate for the Judge to make an order against the Court Service.

You may be wondering, as I was, why it wasn’t possible for the mother to attend remotely from her own home – she was living in a homeless person unit, which probably therefore does not have the necessary facilities for someone to be on their own in a room with reliable wi-fi and no risk of being overheard or interrupted.

The oddest argument about an Interim Care Order

I’ve seen lots and lots of cases about whether or not the Local Authority should have an Interim Care Order and loads about whether interim separation should be granted, but this is the first time I’ve seen a case where the Local Authority ASKED for an Interim Care Order and interim separation, got it, then reunited the child with a family member without consulting with the Guardian or IRO and were arguing with the Court that the child SHOULD be with the mother, just five weeks after securing judicial approval for removal.

What seems to lie at the heart of this is the nationwide difficulty with foster placements – there being a significant disparity between the supply of them and the demand that exists. Most people who do public children work are aware of occasions when placements are sought but not found.

Luton Borough Council v R & Ors [2024] EWFC 52 (13 March 2024)

https://www.bailii.org/ew/cases/EWFC/HCJ/2024/52.html

The case came before MacDonald J, the Circuit Judge who considered the case having been understandably very concerned about the Local Authority’s change of plans for the child and their reluctance to row back on it.

The judgment sets out a lot of the background and issues at ICO stage, whilst of course being mindful that no findings had yet been made on the allegations, they are very succinctly summed up here:-

 the allegations made by X that, whilst in the care of the mother and the father, she was subjected to sexual abuse by three relatives over the course of at least five years, including repeated rapes.

The placement that X was in had broken down shortly after the ICO was made, and the Local Authority were not able to find any alternative foster placements. She was initially placed in a Travelodge with one of her older siblings, that broke down after 2 weeks because the sibling had work committments that could not be resolved, and X’s mother then became the carer – initially at the Travelodge and then at an Air B&B.

The Local Authority were not able to produce documentary evidence of the decision-making around this, nor the decision to place with a parent under the Care Planning Regulations and the matters that need to be satisfied before a Local Authority can do so.

The Head of Service and Operations Manager became involved and the Court was critical of the evidence that they gave, whilst acknowledging that their attendance at Court to give evidence was at quite short notice. They placed reliance on what they asserted to be a robust risk assessment. MacDonald J observes that having read the document it could not be said to be robust, further describing it as cursory and superficial.

The purported risk assessment deals only in the most cursory manner with the allegations of sexual abuse, with a brief summary of the allegations that misses out any account of X’s recent allegations against the paternal grandfather.  In particular, the superficial and incomplete narrative account set out in the purported risk assessment does not deal with the precise nature and extent of the allegations made by X and makes no reference to the views expressed by the mother concerning the source and credibility of those allegations.   The narrative makes no reference at all to the fact that on 31 January 2024 the court was satisfied, pursuant to s.38(2) of the Children Act 1989, that there were reasonable grounds for believing that X had suffered significant harm, that the allocated social worker and the Children’s Guardian were each of the view that the parents were not able to protect X from a risk of sexual abuse, that in those circumstances the local authority had sought the removal of X from the care of her parents or that there was an ongoing police investigation following the arrest of the X’s brother, brother-in-law and paternal grandfather.  Both parents informed the social worker that they have longstanding mental health issues, the mother suffering from chronic depression and anxiety and the father having severe anxiety, panic attacks, hallucinations and paranoia.  These are not dealt with.  The hurried and inadequate narrative is followed by a series of tick boxes that have themselves been inaccurately completed.  Finally, the purported risk assessment that the Head of Service and the Operations Director advanced as the forensic foundation of their conclusion that the mother is now able to protect X from the risk of sexual abuse in the interim contains no analysis whatsoever of the nature and degree of the risk of sexual harm to X or of the extent of the mother’s ability to protect from risk of sexual harm in light of the evidence available. The risk assessment does not deal at all with X’s allegations of physical abuse against her family members, including the mother.  In the foregoing context, the conclusion of the risk assessment is limited to the following, grammatically incorrect, observation:

“Although mother is able to care for X and meet her needs, and is able to keep her safe. The likelihood of X running away, not listening or following instruction, or making other allegations against her mother may be high if X does not get her own way.

(I’d note here that your day in Court is not going well when the key document that you rely on for your case is described as a ‘purported’ X.)

Things were compounded when it appeared to the Judge that the move from the Travelodge to an Air B and B was an alteration to the interim care plan that was being devised during the course of giving evidence in real-time and that the social worker did not seem to know that the interim care plan had changed and that she should have been rewriting this.

The Court was in a difficult position legally – there are authorities that say that where the Court and Local Authority have a different view of the correct care plan / interim care plan, the Court can and should convey that to the LA and the LA should carefully take account of this and consider whether they accept the invitation to change the plan. But ultimately the general position is that the final power for the Court is to not grant the ICO – that doesn’t help here. (And obviously wardship isn’t an option to secure accommodation by the Local Authority)

The LA here were invited to change their interim care plan and decided not to do so.

This is the judicial analysis of a really desperately difficult situation

50.          In these circumstances, what is a manifestly inadequate and flawed document cannot possibly be said to support the decision making of the Head of Service and the Operations Director or the revisiting by the court of its risk and welfare assessments.  Robust risk assessment in the context of alleged sexual abuse is not derived from vague assertions about families “going on a journey with respect to disclosures of sexual abuse”.  It is derived from the careful, detailed, evidence based social work practice that is articulated in, and has been repeatedly emphasised since, the Cleveland Report and which I summarised in Re P (Sexual Abuse: Finding of Fact Hearing) [2019] EWFC 27 at [599].   The purported risk assessment relied on by the Head of Service and the Operations Director in this case fails to measure up in every respect to that long-established guidance.

51.          The decision of the Head of Service and the Operations Director to place X in the care of her mother in an Airbnb, also has no forensic foundation in any other evidence.  Before deciding to place X in the care of her mother in an Airbnb, r.17 of the Regulation 17 of the Care Planning, Placement and Case Review (England) Regulations 2010 required the local authority to assess the suitability of mother to care for X, including the suitability of the proposed Airbnb accommodation, taking into account the matters set out in Schedule 3 of the Regulations.  The matters defined in Schedule 3 include the mother’s ability to protect X adequately from harm or danger, including from any person who presents a risk of harm to X, and to ensure that the home environment is safe for X.  Whilst the Head of Service asserted that approval for the placement of X with her mother pursuant to r.17 of the Care Planning, Placement and Case Review (England) Regulations 2010 had been given, neither the Head of Service and the Operations Director were able to provide the court with any documentary evidence of this decision having been considered, taken and recorded.

52.          Regulation 17(c) of the of the Care Planning, Placement and Case Review (England) Regulations 2010 further required the local authority to determine whether, in all the circumstances and taking into account the services to be provided by the local authority, the placement would safeguard and promote X’s welfare and meet X’s needs set out in the care plan.  However, once again, neither the Head of Service nor the Operation Director was able to provide the court with an amended interim care plan with respect to X.  Indeed, the care plan for X appeared to evolve during the course of the evidence, and in particular the evidence of the Operations Director.  As I have noted, as at 5 March 2024 the local authority’s position was that it would continue its search for a foster placement for X.  At the outset of this hearing, counsel for the local authority did not suggest that position had changed and nor had the other parties been put on notice of any change of position.  The social worker appeared completely unaware that the interim care plan had changed and the fact that, on the Operations Director’s evidence, she should have been drafting a new care plan. Whilst the Operations Director stated during her evidence that the interim care plan had changed from foster care to placement with the mother as the result of a considered discussion and between her and the Head of Service, I regret that I was left with the distinct impression that the Operations Director had revised the interim care plan during the course of her evidence in order to give the appearance of rationality to a decision making process that had in fact driven by a shortage of resources.

53.          Within the foregoing context, it appeared that the sole argument advanced by the Head of Service and the Operations Director to support their assertion that the mother was now able to protect X from the risk of sexual and physical abuse centred on the improvement in X’s behaviour, and thus to depart from the risk and welfare assessments of the court, was that X’s behaviour had improved in the care of her mother.  In this respect, the Head of Service and the Operations Director each argued that this improvement in behaviour was evidence of the mother’s capacity to protect X from sexual and physical abuse to a greater degree than was the case when the local authority sought the removal of X from her mother’s care.  There are obvious difficulties with that contention

54.          There is no robust assessment demonstrating that the genesis of X’s improved behaviour is the result of any improved capacity on the part of the mother to protect her from sexual and physical harm as opposed to, for example, the fact that X is simply happier in the care of her mother than in foster care.  In this context, time and again the Head of Service and the Operations Director mistakenly conflated improvements in X’s behaviour, which have not yet been the subject of formal assessment and may derive from any number of factors, with a reduction in the risk of harm arising from the allegations made by X that, whilst in the care of the mother and the father, she was subjected to sexual abuse by three relatives over the course of at least five years, including repeated rapes.  In the circumstances, I am satisfied that the noted change in X’s behaviour over a short period of time is not a sufficient foundation to depart from the risk and welfare assessments of the court.

CONCLUSION

55.          Alleged sexual abuse is a complex and grave safeguarding issue that demands a careful and precise forensic approach to evidence based risk assessment.  The casual and cavalier approach adopted by the local authority to risk assessment and decision making for X in this case is the antithesis of the correct approach and one which manifestly fails to safeguard X.  On 31 January 2024, this court assessed X to be at risk of sexual and physical abuse and assessed the mother and the father as being unable to protect X from that risk.  In that context, the court further assessed X’s welfare as requiring the removal from her parents’ care.  The local authority has to date placed nothing before the court that justifies those conclusions being revisited.

56.          In the foregoing circumstances, it is the expectation of this court that the local authority will accord the highest respect to the risk assessment and welfare assessment of this court and will now implement the decision made by the court in these proceedings consequent on its assessment of risk and welfare on 31 January 2024.  I shall list the matter for further hearing on 14 March 2024 before Arbuthnot J for the local authority to confirm to the court that this is the course of action that it now intends to take or to seek to persuade the court on proper evidence that the court should now revisit its risk and welfare assessments.  I will make further directions accordingly.

By the time of writing, that hearing before Arbuthnot J should have taken place, and I shall watch out for the decision. I suspect that the phones of the people who find placements for children will have been glowing red hot in the frantic efforts to find a placement, which as I said at the outset is not a problem unique to this Local Authority.

Important High Court decisions on cognitives and intermediaries

These are two important Lieven J authorities which will be useful for all practitioners. .

West Northamptonshire Council v The Mother (Psychological Assessments) [2024] EWHC 395 (Fam) (23 February 2024)

https://www.bailii.org/ew/cases/EWHC/Fam/2024/395.html

It was an application for a cognitive assessment, made by those representing the mother, which was withdrawn on the day of the hearing, but the Judge considered that it raised issues that might benefit from a judgment.

I think that it is warranted – not that the features of this case were particularly bad or unique, but rather that maybe people have got a bit lax on the rules and the law since 2014 and a judicial refresher might be in order.

The application basically said this:-

The Court is requested to commission the instruction of a psychologist to undertake a cognitive assessment of the Mother to assist both the Local Authority and the court in ascertaining:
a) How any assessments should be conducted of her;
b) Her level of intellectual functioning to assist professionals in understanding how she retains information, learns parenting skills and acts on advice;
c) What support she is likely to require in any court hearings and meetings with professionals.

  1. Instructing Solicitors on behalf of [the Mother] is of the understanding that the information identified within a cognitive functioning assessment would identify recommendations which the court and professionals must utilise to ensure that [the Mother] is fairly represented within proceedings.
  2. A cognitive assessment will provide valuable insight to parties regarding how hearings or cross examination should be conducted in respect of [the Mother] and whether she will require any assistance within proceedings moving forward. If a cognitive assessment was not completed, it is believed that [the Mother’s] Article Six Rights to a fair trial will not be upheld.
  3. Furthermore, the Local Authority is likely to carry out further assessments during the course of proceedings. The cognitive assessment will be informative in respect of [the Mother’s] cognitive needs in order for appropriate measures to be put in place. This would allow [the Mother] to engage meaningfully and entirely with all meetings, assessments and court hearings.”

And those are all good reasons WHY, if the mother had a cognitive difficulty, the report would be necessary to assist the Court. What was lacking really was why it was asserted that the mother had a cognitive difficulty.

The statement in support stated at paragraph 11:
“The Mother is deemed vulnerable due to her age, her past experiences and mental health issues. The mother has indicated that she struggles with engaging within professional meetings and retaining information.”
It hardly needs stating that these three matters are exceedingly common in care proceedings, and do not begin without further detail, to justify a psychological assessment. An application under Part 25 for a psychological/cognitive assessment must be accompanied by proper evidence which explains why the case goes beyond the standard difficulties faced by many parents in care proceedings. The evidence must explain why the parent’s needs cannot be properly managed by careful use of language and the professionals taking the time to explain matters in an appropriate manner. The evidence must address why such an assessment is necessary rather than just something that would be “nice to have”.
It would often be the case that if one parent does have cognitive issues this will have been identified at school, during previous interactions with the Local Authority and/or in pre-proceedings work. These earlier interventions will frequently identify whether there are cognitive challenges, and how they can best be handled

The Court was somewhat critical of the Guardian’s position in remaining ‘neutral’ despite the skeleton argument being plain that the test of necessity was not made out.

It is in my view unfortunate that the Guardian and her solicitor stated they were “neutral”. It is quite clear from the Skeleton that the Guardian did not consider the test of necessity in Part 25 to have been met, but still remained neutral on the application. Guardians, and the Children’s solicitors, play an important role in care proceedings in ensuring that the interests of the child are met by minimising delay and maximising the efficient use of resources, in particular by assisting the Court to “Make Cases Smaller”, see the President of the Family Division’s The Road Ahead. If it is clear to the Guardian and the Child’s solicitor that an application should be refused, then they should make that clear to the Court.

Having outlined the test and the meaning of necessity, the Court reminded everyone of the Advocates Gateway and the steps that advocates and the Court can take to make it easier for parents to follow proceedings and understand what is happening.

In deciding whether to allow an application for a psychologist to carry out a cognitive assessment, it is also critical to bear in mind the existence of the Advocates Gateway and the requirement for all those working with parents in care proceedings to be sensitive to their needs. I referred to the Advocates Gateway and the need for all those working in this part of the justice system to be familiar with it and apply its principles in West Northamptonshire Council v KA (Intermediaries) [2024] EWHC 79 at [46]. It would only be appropriate to order a psychological assessment relevant to the Court process if the approach in the Advocates Gateway was plainly insufficient.
It will often be the case that parents may struggle to absorb information, to understand the proceedings and to concentrate through meetings and hearings. However, the solution to this problem is not, in the majority of cases, to have cognitive assessments and appoint intermediaries. It is for all the professionals involved, including lawyers and judges, to bear closely in mind the need to use simple language, avoid jargon, and where appropriate check that a litigant has understood what is being said. That is all set out in the Advocates Gateway.

Conclusions

This application does not come close to meeting the test of being “necessary” to resolve the proceedings, and in my view should never have been made. The fact that Mr Leach referred to taking a “belt and braces” approach indicates strongly that the proper test was not being considered either by counsel when she advised or by the solicitors when they made the application. Unfortunately, such misconceived applications are exceedingly common, particularly in respect of applications for psychologists to undertake cognitive assessments.
Such applications waste considerable resources, both in the courts, but also in the local authorities and Cafcass when they lead to unnecessary hearings and unnecessary expense. It is important that they are not granted without the Court properly addressing the correct test.
Mr Leach referred to a psychological assessment being useful in determining what support the Mother would need to help care for the child in the future. But that is not the purpose of the Part 25 application. Further, and in any event, that type of analysis is one that all social workers should necessarily be very familiar with. There was again nothing in this case which justified going beyond normal good social work practice.
A test of necessity does not mean that a report would be “nice to have” or might help in determining what psychological support the parent might need in the future. That is not necessary to resolve the proceedings.
For all these reasons I refuse the application for a psychological assessment.

The intermediary case referred to above, is also a Lieven J authority, and it is a very important one. I did mean to write about it last month, so it is a good place to pick up on it here.

The Court looked at the Court of Appeal guidance in a criminal case  R v Thomas (Dean) [2020] EWCA Crim 117. and said that the same principles outlined there apply.

The following principles can be extracted from this passage:
a. It will be “exceptionally rare” for an order for an intermediary to be appointed for a whole trial. Intermediaries are not to be appointed on a “just in case” basis. Thomas [36]. This is notable because in the family justice system it appears to be common for intermediaries to be appointed for the whole trial. However, it is clear from this passage that a judge appointing an intermediary should consider very carefully whether a whole trial order is justified, and not make such an order simply because they are asked to do so.
b. The judge must give careful consideration not merely to the circumstances of the individual but also to the facts and issues in the case, Thomas [36];
c. Intermediaries should only be appointed if there are “compelling” reasons to do so, Thomas [37]. An intermediary should not be appointed simply because the process “would be improved”; R v Cox [2012]
EWCA Crim 549 at [29];
d. In determining whether to appoint an intermediary the Judge must have regard to whether there are other adaptations which will sufficiently meet the need to ensure that the defendant can effectively participate in the trial, Thomas [37];
e. The application must be considered carefully and with sensitivity, but the recommendation by an expert for an intermediary is not determinative. The decision is always one for the judge, Thomas [38];
f. If every effort has been made to identify an intermediary but none has been found, it would be unusual (indeed it is suggested very unusual) for a case to be adjourned because of the lack of an intermediary, Cox [30];
g. At [21] in Cox the Court of Appeal set out some steps that can be taken to assist the individual to ensure effective participation where no intermediary is appointed. These include having breaks in the evidence, and importantly ensuring that “evidence is adduced in very shortly phrased questions” and witnesses are asked to give their “answers in short sentences”. This was emphasised by the Court of Appeal in R v Rashid (Yahya) [2017] 1 WLR 2449.

All these points are directly applicable to the Family Court. Counsel submitted that there was a need for intermediaries because relevant parties often did not understand the proceedings and the language that was being used. However, the first and normal approach to this difficulty is for the judge and the lawyers to ensure that simple language is used and breaks taken to ensure that litigants understand what is happening. All advocates in cases involving vulnerable parties or witnesses should be familiar with the Advocates Gateway and the advice on how to help vulnerable parties understand and participate in the proceedings. I am reminded of the words of Hallett LJ in R v Lubemba [2014] EWCA Crim 2064 at [45] “Advocates must adapt to the witness, not the other way round”. A critical aspect of this is for cross-examination to be in short focused questions without long and complicated preambles and the use of complex language. Equally, it is for the lawyers to explain the process to their clients outside court, in language that they are likely to understand.
Finally, it is the role of the judge to consider whether the appointment of an intermediary is justified. It may often be the case that all the parties support the appointment, because it will make the hearing easier, but that is not the test the judge needs to apply.

Practitioners are referred specifically to that first principle :- a. It will be “exceptionally rare” for an order for an intermediary to be appointed for a whole trial.

It does not seem to have been exceptionally rare for that to happen in any case involving even a request for an intermediary to develop into that. We shall see how it plays out.

A line from Hull to Bristol

This is a Court of Appeal decision about care orders at home, and the difference in practice and approach in two (not quite halves) parts of the country. I chatted about this on what we now have to call X yesterday and it drew some interest, so I’m doing a post on it.

Basically, the Court of Appeal were considering a case where a Court had made a Care Order and the child was placed at home. They raised within the appeal broader issues of how the issue of Care Orders at home was being dealt with differently based on whether your Court fell North or South of that imaginary line across the country between Hull and Bristol.

The Court of Appeal (or those who decide these things) felt the case was sufficiently important to make it to the judiciary website – it isn’t yet on Bailii

Re JW (Child at Home under Care Order) [2023] EWCA Civ 944

http://www.judiciary.uk/judgments

For some years it has been recognised that a difference exists in the approach taken by
courts in different regions when determining whether a final care order, supervision
order or no order should be made when care proceedings conclude with a plan for the
subject child to be placed, or remain living, at home with their parent(s). Broadly
speaking, if a line is drawn from Hull down to Bristol and beyond, courts in England
and Wales that are North and West of that line will often make a care order in such
cases, in contrast to courts South and East of the line where normally a supervision
order or no public law order will be made. My experience is that the judges who sit on
one side of the line or the other are confident that the approach taken in their area is the
correct one. The difference of approach is striking, and its existence has become
something of a hot potato, and increasingly so as Family Courts across England and
Wales strive, once again, to conclude public law care proceedings within the statutory
26 week time limit set by Children Act 1989, s 32(1) [‘CA 1989’].

The Court of Appeal go on to say that the last time the issue of Care Orders at home versus Supervision Orders at home was really explored in detail on appeal was in Baker J’s decision of Re DE – a case which really looked at what, from a human rights perspective, the process would be for a Local Authority to use the power under a Care Order to remove and thus disturb the care plan approved by the Court. It isn’t as simple as the LA having the power and using it – they have to follow a careful process and meet tests to ensure fairness, and there’s not an easy method for parents to challenge it – or at least challenge it with lawyers who are being financially recompensed for the work involved.

Re DE looked, at least to a lawyer on the Southern side of that divide, like it was the end of a practice of care orders at home, save in the most exceptional cases. The LA have all of the responsibility but frankly none of the power, and the parents have the spectre of the LA over them until the child is an adult and the fear that the power might be used. It doesn’t seem like an order anyone would want.

But apparently, it was not the end of that practice. My best guess is cases where a Court is worried about a child being at home and dubious about a Supervision Order being enough, but doesn’t feel placement outside the family is justified, reaching for a Care Order as being a middle ground where a greater risk can be managed at home knowing that the LA have statutory responsibilities. I don’t, however, know how that translates into the diffference either side of the Hull-Bristol line.

(The facts of this case were that the parents had 3 children aged 14, 11 and 7. The mother met and married a man named Mr P, who she learned after her marriage had been convicted for possession of indecent images of children – and obviously what an awful thing to learn. She separated from Mr P but there were concerns that she had been allowing him unauthorised contact with the children. If Mr P disappeared from the family life completely then the children would be safe at home, but would that actually happen? The Court made a Care Order for the 3 children with them to remain living with mother, presumably so that the LA could use the Re DE process to remove the children if Mr P was caught having unauthorised contact)

The mother appealed, arguing that rather than make such a draconian order, the Court should have extended the proceedings for fuller assessment of her ability to protect.

This being a judgment led by the President of the Family Division, the law and history of the law about Care Orders versus Supervision Orders is set out clearly and succinctly, and it would be an excellent basis for any lawyer constructing submissions on the point.

The judgment also discusses the Public Law Working Group (PLWG) who considered these issues and provided written guidance, which indicates that:-

‘34. The making of a care order on the basis of a plan for the child to remain in
the care of her parents/carers is a different matter. There should be exceptional
reasons for a court to make a care order on the basis of such a plan.

  1. If the making of a care order is intended to be used [as] a vehicle for the
    provision of support and services, that is wrong. A means/route should be
    devised to provide these necessary support and services without the need to
    make a care order. Consideration should be given to the making of a supervision
    order, which may be an appropriate order to support the reunification of the
    family.
  2. The risks of significant harm to the child are either adjudged to be such that
    the child should be removed from the care of her parents/carers or some lesser
    legal order and regime is required. Any placement with parents under an interim
    or final order should be evidenced to comply with the statutory regulations for
    placement at home.
  3. It should be considered to be rare in the extreme that the risks of significant
    harm to the child are judged to be sufficient to merit the making of a care order
    but, nevertheless, the risks can be managed with a care order being made in
    favour of the local authority with the child remaining in the care of the
    parents/carers. A care order represents a serious intervention by the state in the
    life of the child and in the lives of the parents in terms of their respective ECHR,
    article 8 rights. This can only be justified if it is necessary and proportionate to
    the risks of harm of the child
    .’

I would set that out in a table, but I can’t know how to hear any more about tables. *

The Court of Appeal were very mindful of the wider issues in the case, and that it did not sit comfortably that two entirely different philosophical approaches to care orders at home existed in the country and markedly so on geographical lines – the North taking the view that Care Orders at home were part of a judicial toolkit for problem-solving and the South that they were a very serious intervention that would only very rarely be warranted. This needed to be resolved.

  1. 65. The present situation, in which the law is applied in a markedly different manner in two
    halves of England and Wales, cannot continue. There needs to be a common approach
    throughout England and throughout Wales. What that common approach should be has
    been determined through consultation and discussion by the multidisciplinary
    membership of the PLWG. The recommendations at paragraphs 158 to 162, and the
    Best Practice Guidance at paragraphs 34 to 37, of the PLWG March 2021 report, and
    Appendix C of the April 2023 report on supervision orders, which have already had
    extra-curial endorsement, I now formally endorse in a judgment of this court. They
    must be applied in all cases. The approach taken by the PLWG is no more than the
    logical development of the earlier caselaw, once account is taken of the need for
    proportionality and once it is understood that, following Re DE, there are only
    procedural differences between the power of removal where there is a care order or
    where there is none. As Hale J/LJ made plain, it has never been the case that a care
    order should be used as a means to ensure that a local authority meets the duties that it
    has with respect to children in need in its area, nor should it be used to influence the
    deployment of resources.
  2. The PLWG recommendations and guidance can be reduced to the following short
    points:
    a) a care order should not be used solely as a vehicle to achieve the
    provision of support and services after the conclusion of proceedings;
    b) a care order on the basis that the child will be living at home should only
    be made when there are exceptional reasons for doing so. It should be
    rare in the extreme that the risks of significant harm to a child are judged
    to be sufficient to merit the making of a care order but, nevertheless, as
    risks that can be managed with the child remaining in the care of parents;
    c) unless, in an exceptional case, a care order is necessary for the protection
    of the child, some other means of providing support and services must
    be used;
    d) where a child is to be placed at home, the making of a supervision order
    to support reunification may be proportionate;
    e) where a supervision order is being considered, the best practice guidance
    in the PLWG April 2023 report must be applied. In particular the court
    should require the local authority to have a Supervision Support Plan in
    place.
  1. The impact of the requirement for a 26-week timetable and adherence to the PLO mean
    that the decision as to what final order to make may occur at a comparatively early stage
    where a child has been removed from home, but a rehabilitation plan is being implemented. In such cases, there may be grounds for extending the 26-week deadline to some extent, but where, as in the present case, the children are settled at home and what is taking place is the reinforcement and further development of protective measures over an extended period, the court should make a final order rather than contemplating extending the proceedings over an extended or indeterminate period.

The Court granted the appeal (though to make Supervision Orders rather than extend the proceedings.

*TABLES! is a reference to one of my latest obsessions, “I think you should leave” and this sketch below, which yes, i’m just crowbarring in because I love it. Warning, it does contain some strong language, so NSFW

“why was there swearing?”

Reason to believe – what are the odds???

The test for making interim orders under the Mental Capacity Act is similar (but not quite the same as) the threshold test for making interim care/supervision orders under the Children Act 1989

Section 48 provides:

“Interim orders and directions

The court may, pending the determination of an application to it in relation to a person (“P”), make an order or give directions in respect of any matter if:(a)

there is reason to believe that P lacks capacity in relation to the matter,(b)

the matter is one to which its powers under this Act extend, and(c)

it is in P’s best interests to make the order, or give the directions, without delay.”

s38(2)A court shall not make an interim care order or interim supervision order under this section unless it is satisfied that there are reasonable grounds for believing that the circumstances with respect to the child are as mentioned in section 31(2).

The difference between the two being that the threshold for interim care/supervision orders is that the Court is ‘satisified’ that there are ‘reasonable grounds for believing’ rather than the Mental Capacity Act formulation of ‘there is reason to believe’

Up until now, no Court has quantified in percentage terms what ‘there is reason to believe’ is – Courts have just decided whether based on the evidence presented at an interim stage, the Court considers that there’s reason to believe in s48 MCA cases and whether they are satisfied that there are reasonable grounds to believe in s38 Children Act cases.

It hasn’t been considered necessary until now for a Court to unpeel those tests into the percentage degree of certainty that a Court has to have in order to make that decision. Until now.

A Local Authority v LD and Another 2023

https://caselaw.nationalarchives.gov.uk/ewhc/fam/2023/1258

If you had “Mostyn J” in your sweepstake, congratulations!

Mostyn J, as always, carefully sets out and draws on the jurisprudence to derive his decision, which is this:-

‘rather higher than 25% or at odds shorter than 3-1 (but not odds on)’

Now, for the time being, that’s certainly the test for section 48 Mental Capacity Act cases. I can’t say whether this principle is going to be imported into s38 Children Act cases.

The wording is, as I’ve highlighted above, different for s48 MCA and s38 Children Act 1989, although one of the sources that Mostyn J draws on in the judgment says this:-

Spectrum: In particular, it is possible to identify the two ends of the spectrum. A requirement to “suspect” something before acting is the lowest level, and a requirement to “be satisfied” is the highest.”

My suspicion is that this case just got put on a whiteboard somewhere at the Court of Appeal and will be tidied away in due course. See recent posts… But who knows?

For my part, I think a formulation that a Judge is satisfied that there are reasonable grounds to believe that the threshold criteria are met pending a full resolution of the case is cleaner and less subject to quibbling and challenge that a Judge declaring in Court that they have concluded that there is a 29% probability that the Local Authority will demonstrate to the burden of proof at a later date that the threshold criteria is satisfied.

Control of mobile phone

The High Court in this case was being asked to determine whether a situation where a child is in care and the Local Authority want to restrict their access to their mobile phone falls within a DEPRIVATION OF LIBERTY or an exercise of parental responsibilty.

I.e is it an action that requires the Court to sanction that restriction, or can a Local Authority do it under section 33 of the Children Act 1989?

Manchester City Council v P (Refusal of restrictions on mobile phone) 2023

https://www.bailii.org/ew/cases/EWHC/Fam/2023/133.html

On the facts of this case, P is 16 and vulnerable. She functions at the age of a 7 year old. She had a lot of periods of going missing and during those periods became the victim of Child Sexual Exploitation and sadly had a history of self-harming.

The Local Authority were asking the Court for permission for an arrangement that allowed them to withhold P’s mobile phone from her from 10pm at night to 8am, and for staff to be able to confiscate her mobile phone if her behaviour was escalating.

The legal debate in the case was as to whether those sort of restrictions on the use of a mobile phone were a deprivation of liberty, which have to be sanctioned by a Court, or whether the Local Authority were exercising Parental Responsibility.

Both the Local Authority and the Guardian in this case were saying that the confiscation of the phone was a restriction of liberty and thus needed Court sanction.

Here is what MacDonald J said about the submissions:-

On behalf of the local authority, Ms Whelan submits that such steps are an integral element of the continuous supervision and control and lack of freedom to leave that marks P out as being deprived of her liberty, having regard to the test articulated in Cheshire West and Chester Council v P [2014] AC 896 in the context of the prior decisions of the ECtHR, including Storck v Germany 43 EHRR 96. Ms Whelan submits that the restrictions on P’s mobile phone (and the associated restrictions concerning her tablet, laptop and access to social media) amount to a deprivation of liberty for the purposes of Art 5(1) when viewed in their proper context, namely as an essential element of the restrictive regime that deprives P of her liberty, without which the regime restricting P’s liberty could not be effective (Ms Whelan conceded that the authority for the proposition that, cumulatively and in combination, the elements comprising the implementation of a measure can amount to a deprivation of liberty, namely Guzzardi v Italy (1980) 3 EHRR 333, was decided on very different facts).


In the circumstances, Ms Whelan submits that the act of removing or restricting use of her mobile phone, tablet and laptop and restricting her access to social media, constitutes a deprivation of P’s liberty and thus can be authorised by the court under its inherent jurisdiction where such a course is in P’s best interests. In that latter regard, Ms Whelan points to the evidence that, prior to the restrictions concerning her devices being in place, P was speaking to peers who encouraged P to show behaviours such as, shouting at staff, being verbally aggressive and demanding, was sharing her address with her friends, befriending individuals online who she may not know and, on 24 August 2022, speaking to a female who told P tactics for restricting holds designed to prevent her harming herself so she could escape from such holds.


On behalf of P, Miss Swinscoe submits that the argument advanced by the local authority is brought into even sharper relief in circumstances where for P, in common with most children of her generation, a mobile phone is an integral aspect of what she considers to be her liberty. Echoing Ms Whelan’s submission that, for P, her mobile phone is very much an avenue to the outside world, particularly whilst locked behind closed doors, Miss Swinscoe points to the fact that the restrictions about which P is particularly concerned in this case are those placed on her mobile phone and social media access. Within this context, and in circumstances where the ECHR is said to be a ‘living instrument’, Miss Swinscoe submits that the meaning of liberty for a young person today is very different to the meaning of liberty when Sir David Maxwell-Fyfe, First Earl of Kilmur, was overseeing the formulation of the ECHR at the end of the Second World War, as Chair of the Council of Europe’s Legal and Administrative Division. In this context, Miss Swinscoe submits that a restriction on the use of P’s mobile phone, tablet and laptop, and the concomitant restriction of her access to social media, fits within Lord Kerr’s formulation of the meaning of liberty in Cheshire West at [76] (emphasis added):
“While there is a subjective element in the exercise of ascertaining whether one’s liberty has been restricted, this is to be determined primarily on an objective basis. Restriction or deprivation of liberty is not solely dependent on the reaction or acquiescence of the person whose liberty has been curtailed. Her or his contentment with the conditions in which she finds herself does not determine whether she is restricted in her liberty. Liberty means the state or condition of being free from external constraint. It is predominantly an objective state. It does not depend on one’s disposition to exploit one’s freedom. Nor is it diminished by one’s lack of capacity.”

In the alternative, both the local authority and the Children’s Guardian contend that if the removal of, or the restriction of the use of, P’s mobile phone, tablet and laptop, and restriction of her access to social media, do not constitute a deprivation of liberty for the purposes of Art 5(1), in circumstance where s.8 is not available in respect of a child who is the subject of a care order, the court can in any event, where necessary, authorise such a course under its inherent jurisdiction in the best interests of P.


Ms Whelan did not seek to dispute the proposition that, in principle, it would be open to the local authority to regulate P’s use of her mobile phone by exercising its parental responsibility under the care order pursuant to s.33 of the Children Act 1989, albeit that Ms Whelan expressed some concern, where P is now 16 years old, with respect to resorting to s.33 of the 1989 Act without guidance from the court that this constitutes a legitimate course (in circumstances where the courts have in other cases demarcated the ambit of s.33 of the Act, for example in Re H (A Child)(Parental Responsibility: Vaccination) [2020] EWCA Civ 664).


Ms Whelan submits, however, that where P refuses to co-operate with restrictions on her mobile phone, usually in times of emotional dysregulation where there is a risk that P will become violent, and where the use of her mobile phone is threatening her safety, for example by exposing her to contact with unknown individuals who may pose a risk of child sexual exploitation, it must remain open to the court to make an order under the inherent jurisdiction to remove or restrict the use of P’s devices in her best interests. Ms Whelan drew analogies with other cases in which the court utilises its inherent jurisdiction to impose steps upon a child designed to prevent the child suffering harm, for example were treatment is imposed on children suffering from anorexia nervosa (see Re C (Detention for Medical Treatment) [1997] 2 FLR 180). Ms Whelan submits that an order giving effect to the restrictions sought with respect to P’s mobile phone, tablet, laptop and access to social media would, in circumstances where their use presented a risk of significant harm to P, constitute a necessary and proportionate interference with P’s Art 8 rights having regard to the terms of Art 8(2
).

On behalf of P, Miss Swinscoe submits that s.33 of the Children Act 1989 would operate to allow the local authority to regulate P’s use of her mobile phone in situations where P is co-operating. Miss Swinscoe points to the fact that whilst P wants to keep her mobile phone, she has been capable of agreeing that it is sensible to hand it to staff. Miss Swinscoe submits, however, that on the evidence before the court, the difficulty is when P becomes dysregulated and the local authority needs to restrict the use of her telephone against her refusal to co-operate in order to protect her safety, where there is clear evidence, Miss Swinscoe submits, that the use of the phone, and her other devices, by P can expose her to a risk of significant harm.

The Court was taken to a decision of the ECHR

In Guzzardi v Italy, a case concerning the conditions of remand on the Italian island of Asinara of a suspected Mafioso, one of the elements of implementation that appears, in combination with others, to have grounded a finding that a deprivation of liberty for the purposes of Art 5(1) had occurred was the requirement on the applicant to “inform the supervisory authorities in advance of the telephone number and name of the person telephoned or telephoning each time he wished to make or receive a long-distance call” (the other conditions being, in summary, to reside in a prescribed locality on the island; not to leave that area without notifying the authorities; to report to authorities twice a day when requested to do so; to be law abiding and not give cause for suspicion; not to associate with convicted persons; to obey a curfew; not to carry arms and not to frequent bars or nightclubs or attend public meetings). It is further of note that the restriction regarding telephone use was to prevent contact with other alleged criminals during a period of remand and that the applicant was liable to punishment by arrest if he failed to comply with that obligation. As conceded by the local authority during oral submissions, Guzzardi v Italy thus involved very different facts to those that are before this court.

The Court looked at the relevant statute and case law on deprivation of liberty, section 33 and inherent jurisdiction.

The decision paragraphs are set out at paragraphs 44-69, and are worth reading, but are probably too in-depth for the purposes of this blog.

What we are interested in chiefly is the decision, and it is this:-

In the circumstances, and for the reasons I have given, I refuse to sanction the removal of, or the restriction of the use of P’s mobile phone, tablet and laptop and her access to social media by way of an order authorising the deprivation of her liberty for the purposes of Art 5(1) of the ECHR. I shall instead, make a declaration that it is lawful for the local authority to impose such restrictions in this regard as are recorded in the order in the exercise of the power conferred on it by s.33(3)(b) of the Children Act 1989. Whilst I am satisfied that, were the evidence to justify it, it would be open to the court to grant an order under its inherent jurisdiction authorising the use of restraint or other force in order remove P’s mobile phone, tablet and laptop from her if she refused to surrender them to confiscation, the evidence currently before the court does not justify such an order being made. Finally, I am satisfied that the other restrictions sought by the local authority do constitute a deprivation of liberty for the purposes of Art 5(1) and that it is in P’s best interests to authorise that deprivation of liberty. I shall make an order in the terms of the order appended to this judgment.
Dicey considered the right to liberty to be one of the general principles of the Constitution (see Dicey, A V An Introduction to the Study of the Law of the Constitution (1885) 9th edn, MacMillan 1945, p 19). In R v Secretary of State for the Home Department ex p Cheblak [1991] 1 WLR 890, Lord Donaldson observed that “We have all been brought up to believe, and do believe, that the liberty of the citizen under the law is the most fundamental of all freedoms.” Within this context, it essential that the State adhere to the rule of law when acting to deprive a child of his or her liberty. This will extend to ensuring that an order lawfully depriving a child of his or her liberty does not act also to deprive that child of other cardinal rights without there being in place proper justification for such interference by reference to the specific content of those other rights.
Each case will fall to be determined on its own facts. However, I venture to suggest that it will not ordinarily be appropriate to authorise restrictions on phones and other electronic devices within a DOLS order authorising the deprivation of the child’s liberty. Further, it is to be anticipated that, in very many cases, any restrictions on the use of phones and other devices that are required to safeguard and promote the child’s welfare will fall properly to be dealt with by the local authority under the power conferred on it by s.33(3)(b) of the Children Act 1989. Only in a small number of cases should it be necessary to have recourse to an order under the inherent jurisdiction, separate from the order authorising the deprivation of liberty, authorising more draconian steps to restrict the child’s use of a mobile phone or other device and only then where there is cogent evidence that the child is likely to suffer significant harm if an order under the inherent jurisdiction in that regard were not to be made.
That is my judgment.

So it is something that the Local Authority can do under section 33 – it will be important as with any decision that the Local Authority make under s33 that they are properly consulting the child and parents, and properly recording their decision and the reasons for it.

Unconditional consent

This is an Appeal about a decision to make a Parental Order in a surrogacy case.

Re C (Surrogacy : Consent) 2023

https://www.bailii.org/ew/cases/EWCA/Civ/2023/16.html

In the original hearing, the woman who gave birth to the child had become more attached to the child than she had envisaged when she originally agreed to the surrogacy, and she was concerned that she would be shut out of the child’s life if a Parental Order was made. She was not legally represented at the hearing and it took place remotely.

The mother at the hearing had said that she would agree to the making of a Parental Order IF and only IF there was a Child Arrangements Order to specify that she would be able to spend time with the child.

Parental Orders are governed by the Human Fertilisation and Embryology Act 2008 and one of the requirements in making them is :-

Section 54(6), with which the present case is concerned, provides that:
“(6) The court must be satisfied that both —
(a) the woman who carried the child, and
(b) any other person who is a parent of the child but is not one of the applicants […],
have freely, and with full understanding of what is involved, agreed unconditionally to the making of the order.”

(There’s a s54(7) which allows the Court to waive parental consent only if the biological parent cannot be found, but that isn’t relevant for this case. )

Unlike say a Placement Order which the Court can make even if the parent objects if the appropriate legal test is met, there is no discretion for the Court on a Parental Order – if the criteria in s54(6) is not met, the Court cannot make the Parental Order.

The Court did make a Parental Order and a Child Arrangements Order that the biological mother should be able to spend time with the child. The mother later appealed. There is also ongoing private law litigation about contact.

The issue as to whether the consent has been given freely, with full understanding of what is involved and unconditionally is a matter for the Court, and it is understandable that the Court of Appeal wanted to look very carefully at the transcript of the hearing.

The hearing took place between 10.08 am and 10.30 am. We have been provided with a transcript and have also listened to the recording. It is necessary to set out some parts of the transcript to fairly understand the course of the hearing, with editing to maintain anonymity.
The effective part of the hearing started with an introduction from the Respondents’ counsel. She explained that the parties had agreed the terms of a child arrangements order, and although the court could not make such an order on its own initiative in the parental order proceedings, it could grant permission for an application to be made under the Children Act, and then make an order. However, she noted the requirements of section 54(6) and informed the judge that Ms A would be saying that her consent to a parental order was conditional on the making of a child arrangements order. Counsel nonetheless invited the court to consider making a parental order on the basis of Ms A giving her consent, with a child arrangements order being made “as a separate matter”.
After some consideration of the Children Act provisions and the proposed contact arrangements, the judge then addressed the Appellant:
“THE JUDGE: Ms A, Ms Maxwell has outlined the position to me and, as I think you probably know, there are a number of matters in the statute, section 54, that I have to be satisfied about and one of those Ms Maxwell has rightly reminded me is that you, freely and with full understanding of what is involved, agree unconditionally to the making of the order. If you only agree to the making of the order if there is a child arrangements’ order, then that would obviously not be freely and unconditionally given consent.
The other matters in the statute are all dealt with amongst the papers in particular and also in Mrs Chapman’s report, so I do not think any of those cause me a difficulty in making the order. The only one that does is the consent because, although I understand there is an agreement that there will be contact, and I will be asked to make a child arrangements order, I cannot do that as a condition of making the parental order. I can only make the parental order if you freely consent and without conditions, so, first of all, does that make sense to you, what I have just said? I know sometimes for a non-lawyer it gets a bit convoluted. You are nodding so that is helpful, thank you.
Then, I suppose, first of all, is there anything you want to ask me and then is there anything you want to say in response, as it were?
The Appellant then replied in these terms:
MS A: Thank you, your Honour, there is nothing I want to ask you but in terms of the condition, the unconditional consent, I think I would be lying if I said that I unconditionally consent to it because it is a– I would like to see C and so I am making the parental– the consent on that I see C. If I– I don’t unconditionally give it because I am fearful that I won’t have time to spend time with C and so that’s why I can’t quite unconditionally consent.
However, I do believe it is in all of our interests to move on with our lives and to kind of start rebuilding our relationship again and I do feel that having a child arrangements order is best for all of us along with a parental order being made, but I couldn’t lie and say that I do give my consent unconditionally. If that helps, your Honour.”
The judge responded at some length, starting in this way:

“THE JUDGE: Well, it is very clear and I fully understand what you are saying. It does not help me– and this is not a criticism of you, it does not help me get over the legal obstacle. Let me look at it in a different way and, please, let me be very clear, I am not trying to put any pressure on you at all because that would be wrong, because the whole point is that I make an order only if everybody consents… I cannot make a child arrangements order in this particular proceedings probably for very good reason, because if it was part of the issues, then it probably would not be freely consented to…
She then explained that she would be content to hear an oral application for a child arrangements order, saying:
“So in terms of trying to reassure you, I am told that application would not be opposed. You could make it orally once I have concluded the making of a parental order but I cannot make the parental order unless you do consent to it… — and if you do not consent, and again I am not saying this in any way to put pressure on you– sometimes it may sound a bit like that but of course if you do not consent, you will all be in this limbo moving forward until somebody attempts to make a different application which obviously the applicants may do but I cannot adjudicate on that in advance.
So we are in a slightly difficult position… I think you consent to the concept that the applicants are, as it were, C’s parents and that is recognised in law. I think the issue is one of concern about the way forward for contact, so– but unless I have you unconditionally consenting I think we cannot move on from this limbo, so I am not– try to think about what I have just said for a minute and while you are thinking about that, I am going to go to Mrs Chapman to see if she would like to add or say anything because I think apart from this difficulty she feels that the criteria are met but I just want to check with her.
The judge then turned to Mrs Chapman, who confirmed that the Appellant was happy with the parenting C was receiving but that she did not want to consent because she wanted a legal right to spend time with C and was scared of having no contact.
The judge then returned to the Appellant for these important exchanges:
THE JUDGE: … so, Ms A, we are in the position that as a matter of law and also considering C’s welfare, I think all of us agree that a parental order is the right thing for him. Everybody agrees that it is right for him to see you and to know you but it is just coming back to the original question, so having heard what has been said, what is your thinking now?
MS A: Then the only way forward is for me to give my unconditional consent, your Honour.
THE JUDGE: I am sorry?
MS A: I will provide my unconditional consent.
THE JUDGE: And you are quite sure about that?
MS A: I don’t see that there is any other way for us to move forward without it.
THE JUDGE: Well, I think that was the right decision and I think that is extremely helpful for everybody, for all of you and perhaps most importantly of course for C. I am very grateful to you and I expect the applicants are as well. So what I will do is I will make the parental order… Then in terms of a child arrangements’ order, now that the parental order has been made, everybody agrees that it is… right for Ms A to have contact and under the Children Act you can make an application or I can treat an oral application as having been made and given the amount of information I have about all of you, I do not need you to go through the normal process of getting enquiries from Cafcass because obviously I already have that information from Mrs Chapman, so I would be content to make a child arrangements’ order and Ms Maxwell has said that the agreed way forward is the every six weeks– I appreciate there will be a little bit more detail to this but every six weeks for a day, holidays and Christmas and– so that is her position. So from your side, Ms A, is that agreed by you as the way forward?
MS A: It is, yes.
THE JUDGE: In that case, I had better go back to Mrs Chapman in case from a welfare point of view she has any concerns. Mrs Chapman, from a welfare point of view for C would you be happy to endorse that order?
MRS CHAPMAN: Yes, I am happy to endorse that order.
THE JUDGE: So in that case that order will then follow, so we have a parental order and there will then be a child arrangements’ order. I think then I hope very much that all of you can relax a little after what has been quite a difficult time and move forward. C is going to be one soon and I think it would be very nice to move forward knowing all the decisions have been made, so if I go back to Ms Maxwell; Ms Maxwell, is there anything else you want to add?
MS MAXWELL: Your Honour, no, thank you very much.
THE JUDGE: Okay. Ms A, is there anything else you want to add?
MS A: No, thank you.
THE JUDGE: Well, thank you very much, and, Mrs Chapman, is there anything else you want to add?
MRS CHAPMAN: No, I have got nothing more to add, thank you.
THE JUDGE: Well, thank you very much for your help and my thanks to everybody for their help because I know it can be quite stressful in a situation like this, so I am very grateful to everybody for having achieved the right way forward for C…
Okay, thank you all very much for attending. I know it has been difficult for everybody and I can see for Ms A in particular, so I will thank you all for attending and I will let you all go now. Thank you very much everybody.
MS A: Thank you, bye.
THE JUDGE: Bye.”

My feeling when reading this exchange is that the mother had not freely and unconditionally consented at the outset, and that by the end of hearing she was saying that she did unconditionally consent although it is hard to see that she genuinely meant it.

The biological mother argued at appeal that she had not unconditionally consented, and that the division that the Court made of making the Parental Order with ‘unconditional consent’ on the basis that moments later an uncontested Child Arrangements Order would be made did not vitiate that lack of consent.

The carers were arguing that the Court was entitled to separate out the two orders and have them run sequentially in “sealed deliberations” and that therefore the biological mother’s consent was unconditional. They further argued that if the Court of Appeal was not with them on that, that s54(6) should be read as though the words “Such consent not to be unreasonably withheld” were added.

(This is apparently something which is currently being actively considered by the Law Commission who are looking at surrogacy)

The Court of Appeal set out their decision:-

There are three questions to be answered in this case. The first is whether, on a straight reading of s.54(6), the Appellant gave free and unconditional consent to the making of the parental order. The second is whether, if that is not the case, the Convention requires the court to assume and exercise a power to dispense with consent, and thereby to preserve the parental order. The last question is what order this court should make in respect of the underlying application for a parental order if the answer to each of the above questions is ‘No’.
The requirement that a person has “freely, and with full understanding of what is involved, agreed unconditionally to the making of the order” means exactly what it says. Although it may be forensically convenient to separate out the individual elements, what is required is a consent that is free, informed and unconditional. If that is achieved, it is immaterial whether the consent is given gladly or reluctantly.
Where there is any doubt about consent, it will be a matter for the court to judge, giving consideration to all the circumstances. One relevant factor is likely to be the means by which consent has been expressed. Because of the profound consequences of the underlying choice, it is normal for there to be a degree of formality. This is reflected in the preference in FPR 13(11) for consent to be in writing, using Form 101A and with the parental order reporter as witness. Even then, consent can be withdrawn at any stage before the order is made. This degree of formality is not mandatory but its absence should put the court on its guard to ensure that the proffered consent is valid. In the present case, the disputed consent was given orally in the face of the court and via CVP. In that unusual situation, a sharp eye had to be kept on the possibility that the court process might of itself be exerting pressure to the extent that any stated consent was devalued.

Further, although the hearing was conducted with complete courtesy, there were a number of other objective features to put the judge on her guard. In the first place this was a remote hearing in a sensitive case, with the Appellant being alone and unrepresented. The inevitable stress on any litigant was then inadvertently exacerbated by the way in which the Appellant found herself out on a limb, with her position on consent being represented as the only obstacle to an overall solution: “if you do not consent, you will all be in this limbo”. Also, an unrepresented litigant who is addressed by a judge at some length may be influenced by feelings of deference. Again, I recall that the judge was motivated by her assessment of what was in the best interests of C, the Respondents and indeed the Applicant herself. That welfare assessment was very probably sound but it had nothing to do with the question of consent. Had the resulting arrangements been satisfactory to all concerned, the problems with consent would no doubt have faded from memory, but the fact that the outcome has been so disappointing so far tends to show that the order was not built on solid foundations.
I would accept as a matter of principle that it is possible to conceive of a parental order and a child arrangements order coexisting. None of the reported cases has had that outcome, but they may not be representative of all problematic surrogacies. Some unproblematic surrogacies do not lead to parental orders at all, and contact with a surrogate will sometimes take place without any thought of a child arrangements order, even where a parental order has been made. However, in cases where there is less trust, there must still be a narrow path available to parties who genuinely agree that dual orders are the solution. While the statute does not envisage such orders, it does not expressly exclude them and to that extent I would accept Mr Vine’s submission that it might be possible for this outcome to be achieved. What the statute does, however, unequivocally exclude, in order to protect the surrogate, is twin orders in circumstances where one order is the price for the other. That is what occurred in this case.
For these reasons, the answer to the first question is that the Appellant’s consent was not merely reluctant but neither free nor unconditional. It was given in reliance on the promise of a child arrangements order and the Appellant’s statement that she gave it unconditionally did not reflect the reality. Furthermore, the eventual expression of consent was given under unwitting but palpable pressure. The parental order should not have been made.
Coming to the second question, I unhesitatingly reject the submission that section 54(6) can be read in such a way as to confer a dispensing power upon the court. The right of a surrogate not to provide consent is a pillar of the legislation and the assumption by the court of such a power would go far beyond permissible judicial interpretation of the kind found in A v P and in Re X. It is beyond doubt that the proposed setting aside of the parental order would clearly fall within the scope of the private and family life aspects of Article 8: Mennesson at paras. 87 and 96. However, the rights of the Respondents and of C are not violated by the setting aside of the order for want of consent on the part of the Appellant. The Strasbourg court has recognised a considerable margin of appreciation in this area and the potential availability of adoption to secure C’s legal relationships is also relevant, even if that route would be sub-optimal: Valdis Fjölnisdóttir v Iceland, Application no.71552/17, 18 August 2021. I would take this view even if this court were to make its own Article 8 assessment at the present date. I therefore conclude that the Convention does not require the parental order, made without valid consent, to be left in place.

The final question is what order should be made in respect of the underlying parental order application. The choice is between dismissing it or remitting it. I would look favourably on remitting if a parental order could possibly result from the parties being given another opportunity to take stock. I have noted that the judge might have adjourned the hearing for that purpose, and Ms Bazley has accepted that this option was open to her. But that was in the middle of 2021 and we are now in early 2023. In the meantime, relationships between the parties have deteriorated further, as the ongoing Children Act proceedings show. Even with the benefit of their current representation, the parties have been unable to devise a solution of their own. The Appellant’s position is that she will not consent to a parental order.
In these circumstances, I am driven to conclude that to remit the parental order application would perpetuate the process that led to the making of the original order. I would therefore allow the appeal and dismiss the application for a parental order. That C should be brought up by the Respondents and have contact with the Appellant was intended by all. It remains agreed by all that C will continue to be brought up by the Respondents, but the appropriate legal mechanism for that, and the question of contact with the Appellant are matters that are beyond the scope of this appeal.

I’m very glad that the Court of Appeal did not decide to read words into the statute which are not there – we’ve seen in recent years dilution of the statutory principle about only reasonable expenses being paid in surrogacy and about the time limits for making the application. If the Law Commission makes recommendations for changes that are approved by Parliament then so be it, but I personally don’t care for the Court amending statute to solve hard cases.

The family Court learning from criminal Courts

Trigger warning – this post contains discussion of the law around rape – I will not be going into any detail about allegations and confine the post to legal principles, but I’m aware that both the subject and the whole issue of how rape has been dealt with by the Courts may be triggering for some.

Over the last two years, the family Court has been rather tying itself up in knots about the interelationship between the criminal law about rape and how such cases are dealt with and how allegations of rape are dealt with in the family Court.

I’d thought that Re HN had largely resolved this, with this guidance

In Re H-N, the Court of Appeal was addressed at length by a wider range of parties and interveners than were present in these appeals on whether the family court should analyse factual issues within the criminal law framework. At [71], the Court of Appeal reaffirmed the general principle that:
“The Family Court should be concerned to determine how the parties behaved and what they did with respect to each other and their children, rather than whether that behaviour does, or does not, come within the strict definition of “rape”, “murder”, “manslaughter” or other serious crimes.”
At [65] of Re H-N, the President emphasised that there was a clear distinction between (a) family judges needing to have a sound understanding of the potential psychological impact that serious sexual assault may have on a victim’s behaviour, both during and after the event, and in the way that they may give their evidence and present in court and (b) family judges avoiding being drawn into an analysis of factual evidence based on criminal law principles and concepts. However, issues concerned with process in the family court such as the conduct of the hearing and the scope of cross examination could potentially draw upon good practice in the criminal court [74]:
“The distinction between a court having an understanding of likely behaviour in certain highly abusive settings and the tightly structured requirements of the criminal law will not, of course, be clear-cut. That is particularly so when the judge in the Family Court must conduct their own analysis of issues such as consent, and must do so in the context of a fair hearing. In this regard, the procedural manner in which the hearing is conducted and, in particular, the scope of cross examination of an alleged victim as to their sexual history, past relationships or medical history, justify consideration separately from the general prohibition in determining the substantive allegation. Nothing that is said in Re R, or endorsed in this judgement, should inhibit further consideration of such procedural matters. They are beyond the scope of this judgement and are more properly to be considered elsewhere.”

But Knowles J was asked in this case to give some further guidance

https://www.bailii.org/ew/cases/EWHC/Fam/2022/3089.html

Re A and Another v B and Others 2022

These were the issues the High Court was asked to give a view on :-

A) Whether the family court should apply a consistent definition of (i) rape, (ii) sexual assault or (iii) consent, making clear the difference between consent and submission;

B) Whether the failure to have a consistent approach to these issues was in breach of the Article 6, 8 and 14 rights of the Appellant mothers;

C) Whether the definitions of rape, sexual assault and consent used in the criminal justice system should be either a starting or finishing point for judges in the family court;

D) What the approach of the family court should be to a complainant’s sexual history when determining allegations of rape or sexual assault; and

E) Whether, when determining allegations of rape and/or sexual assault, judges in the family court should give themselves a warning about rape myths. Generally, such myths concern themselves with the behaviour or experiences of a complainant.

The Court addressed A) and C) together

23. In my view, the correct starting point is that the family court must not import criminal definitions as an aid to fact-finding. Its focus, as Re R and Re H-N made clear, is to determine how the parents of a child behaved towards each other so as to be able properly to assess risk and determine the welfare issues in each case. I note that Parliament recently passed the Domestic Abuse Act 2021 and, in so doing, expressly replicated in the family court some provisions applicable in the criminal courts, for example, in relation to cross-examination by litigants in person. However, Parliament declined to legislate for a framework in the family court within which to determine allegations of rape and sexual assault: it was not invited to do so during the passage of the Act. In those circumstances, it is difficult to conceive that this court might now attempt to do so.
At first instance, the family court determines allegations of rape and sexual assault without a legislative definition or framework. That is consistent with the purpose of a fact-finding exercise in family proceedings, which is to determine only such factual issues as are necessary to assess risk and to illuminate the welfare issues. That approach in private law proceedings is consistent with the approach in public law proceedings in which the family court conducts fact-finding in circumstances where, for example, a parent is alleged to have caused the death of a child, or where a parent is alleged to have inflicted injury on a child.
The Appellants placed reliance on examples of variable approaches taken by first instance judges sitting in the family court to the factual determination of allegations of rape or sexual assault. It is unnecessary for me to identify the judgments in issue since the relevance of those decisions was not the characterisation of behaviour by reference to concepts of consent or submission to sexual intercourse but rather that the court had accurately determined narrative findings which could inform the subsequent risk and welfare analysis. In that regard, I am very clear that the comments of the Court of Appeal at [71] in Re H-N are crucial in underscoring the clear distinction between the family and the criminal court, namely that:
“Behaviour which falls short of establishing “rape”, for example, may nevertheless be profoundly abusive and should certainly not be ignored or met with a finding akin to “not guilty” in the family context. For example, in the context of the Family Court considering whether there has been a pattern of abusive behaviour, the borderline as between “consent” and “submission” may be less significant than it would be in the criminal trial of an allegation of rape or sexual assault”.

It is my firm view that a focus on seeking to characterise or establish behaviour as meeting a particular definition runs the risk of the court becoming “unnecessarily bogged down in legal technicality” (see [29] of the decision of Cobb J in F v M (Appeal: Finding of Fact) [2019] EWHC 3177 (Fam) and [66] of Re R in the Court of Appeal). Applying criminal definitions narrows the court’s focus inappropriately away from the wider consideration of family relationships at play in a fact-finding hearing. In Re R, albeit in the context of findings of “murder” or “manslaughter”, McFarlane LJ identified at [62] the scope and purpose of a fact-finding hearing in the family court as follows:
“The focus and purpose of a fact-finding investigation in the context of a case concerning the future welfare of children in the Family Court are wholly different to those applicable to the prosecution by the State of an individual before a Criminal Court. The latter is concerned with the culpability and, if guilty, punishment for a specific criminal offence, whereas the former involves the determination of facts, across a wide canvas, relating to past events in order to evaluate which of a range of options for the future care of a child best meets the requirements of his or her welfare…
… In family proceedings, the outcome of a fact-finding hearing will normally be a narrative account of what the court has determined on the balance of probabilities) has happened in the lives of a number of people and, often, over a significant period of time. The primary purpose of the family process is to determine, as best that may be done, what has gone on in the past, so that that knowledge the ultimate welfare evaluation where the court will choose which option is best for a child with the court’s eyes open to such risks as the factual determination may have established”.
Thus, a family judge must consider a “wide canvas” and scrutinise the family relationships – whether of adult to adult or adult to child – over a period of time in order to arrive at a factual determination relevant to both risk and welfare. Whilst I recognise the effort which Mr Metzer KC and Dr Proudman have invested in their framework for determining allegations of rape and sexual assault/abuse, that framework is too narrowly focused on the specifics of whether a sexual relationship is “willing” or not. In essence, it substitutes the word “willing” for “consent” and would be as prescriptive as applying the concepts used in the criminal courts. It is, in my view, too narrow a prism through which to view and investigate the true nature of an adult relationship.

The danger of adopting too narrow a focus on the sexual relationship between two adults was evident in the decision of the Court of Appeal in K v K [2022] EWCA Civ 468 where, amongst other matters, the Court of Appeal was critical of a family judge for failing to stand back and take account of the whole of the evidence before him. In [61], the Court of Appeal stated this:
“In this case, however, by failing to step back and take into account the whole of the evidence before him, the judge placed unjustifiable weight on the issue of whether the mother had had a conversation with the father about her unhappiness at his initiating sex when she was asleep. He elevated that issue into the determinative one, saying that if it were proved, the allegations would themselves be made out. The judge failed to bring the various points of challenge made by the father into his evaluation. Those failures meant that there cannot be said to have been a fair consideration of these important allegations from the father’s perspective. At no stage did the judge step back and consider the mother’s credibility in the round, bringing into account his findings that the mother had put forward false allegations of reporting to Dr C, of financial control, and (also) of isolation from her family when in fact the family had lived with her parents between 2004 and 2012.”
K v K is also of importance because it emphasised yet again what ought to be the focus of a fact-finding exercise in children cases where there are allegations of domestic abuse, namely whether the adult relationship was characterised by coercion and/or control. In [51] of Re H-N, the Court of Appeal was at pains to emphasise that “consideration of whether the evidence establishes an abusive pattern of coercive and/or controlling behaviour is likely to be the primary question in many cases where there is an allegation of domestic abuse, irrespective of whether there are other more specific factual allegations to be determined”. Barely a year after Re H-N was determined, K v K sought to clarify a perception that it was a requirement for a family judge to determine each and every allegation of domestic abuse during a fact-finding exercise. In robust terms, the Court of Appeal stated this was not the case and that a family court should determine “only those factual matters which are likely to be relevant to deciding whether to make a child arrangements order and, if so, on what terms” [67]. That steer from the Court of Appeal underscores my view that as wide a canvas should be brought to the determination of specific allegations of sexual abuse as is brought to any overarching allegations of coercive and controlling behaviour.
As to any criticism of PD12J for a failure to contain a framework to assist in determining specific allegations of sexual abuse, that is, in my view, misplaced. PD12J sets out a specific procedural framework for managing and determining allegations of domestic abuse within private law children proceedings. It includes definitions of the sorts of behaviour which constitute domestic abuse and general principles by which the court should be guided but, rightly, does not contain a detailed framework to assist the family court either in evaluating evidence or in determining what might constitute domestic abuse in an individual case. As I have already indicated, the inclusion of the type of framework advocated for by Mr Metzer KC would inappropriately narrow the court’s focus and run the risk of becoming a tick box exercise rather than a holistic evaluation of the evidence in a particular case.
I also acknowledge that there are examples of the family court analysing evidence by reference to principles established in the criminal court. Thus, the Lucas direction with respect to lies (R v Lucas (1981) QB 720) is firmly established as a principle in the family court and, when determining allegations as to whether an injury is inflicted, the family court not infrequently relies upon the guidance in R v Henderson and Others [2010] EWCA Crim 1219 and R v Cannings [2004] 2 Crim Ap Reports 63, namely that the court should resist the temptation to believe that it is always possible to identify the cause of injury to a child. Finally, in F v M [2021] EWFC 4, Hayden J had regard to s 76 of the Serious Crime Act 2015 when considering allegations of coercive and controlling behaviour. The first two examples do not concern definitions of criminal concepts or frameworks for establishing an offence. As Miss Fottrell KC submitted and I accept, these relate to the broader task of evaluating evidence more generally. Although in F v M, Hayden J considered the substantive framework for the offence of coercive and controlling behaviour, he analysed such behaviour by reference to the definitions contained in the FPR, specifically disapproving of an overly formulaic analysis which might tend “to obfuscate rather than illuminate” the nature of such behaviour within family proceedings (see [108]).
A recent example of the family court’s approach to allegations of sexual abuse within private law children proceedings is the case of Re B-B (Domestic Abuse: Fact Finding) [2022] EWHC 108 (Fam). This judgment followed a re-hearing of allegations of domestic abuse following the Court of Appeal’s decision to allow an appeal against the original first instance decision (see Re H-N at [78]-[115]).

Thus, for the reasons set out above, I reject the need for the family court to apply consistent definitions of rape, sexual assault, and consent. I also hold that the definitions of rape, sexual assault, and consent used in the criminal justice system should have no place in the family court.

The Court considered the Article 6, 8 and 14 rights point B) at paras 33 and 43 of the judgment and concluded that there was no basis for concluding that the approach of the family Courts in relation to allegations of rape or sexual assaults was a breach of those rights.

In relation to D) – guidance about introduction of evidence of sexual history, the Court was in agreement that some guidance would be beneficial – Practice Direction 12 J did not provide specific guidance on these matters.

Having reflected on the invitation to give some guidance on this issue, I do so mindful of the comments in [74] of Re H-N which did not inhibit further judicial consideration of procedural matters such as the scope of cross-examination of an alleged victim as to their sexual history and past relationships. The framework I offer for determining these issues is firmly grounded in the established approach to evidence in the family court.
My starting point is that the established approach to evidence in the family court can accommodate circumstances in which a parent, either making or facing allegations of sexual abuse, seeks to adduce evidence of the other person’s sexual history, or their own sexual history or their shared sexual history. To summarise, this involves the following process:
(a) An assessment of the relevance of the evidence for which permission is sought to be adduced, having regard to the need for the court to consider the “wide canvas” of evidence;

(b) Thereafter, where objection is made to such evidence being adduced, a balancing exercise as to the competing interests and Convention rights involved;

(c) At all times, consideration of the breadth of the court’s powers to control the manner in which evidence is to be placed before it.

Going into more detail as the process, the High Court said this:-

When considering these matters, the first step must be to consider the admissibility of the evidence in question. Admissibility is determined by relevance and the question of relevance is one of fact, degree, and proportionality (see [23] of Dunn v Durham County Council [2013] EWCA Civ 1654).
When considering the question of relevance and evaluating the weight to be afforded to evidence which crosses that threshold, the family court applies well established principles, many of which were developed in the context of public law proceedings, but which are equally applicable to private law proceedings:
(a) The court must consider the “wide canvas” of evidence.
(b) Evidence cannot be evaluated and assessed in separate compartments but must be considered in its totality. The court must consider each piece of evidence in the context of all the other evidence (see [33] of Re T [2004] EWCA Civ 558 per Butler-Sloss P).
(c) The decision on whether the facts in issue have been proved to the requisite standard must be based on all the available evidence and falls to be assessed against the wider context of social, emotional, ethical, and moral factors (see [44] of A County Council v A Mother, A Father, and X, Y and Z [2005] 2 FLR 129).
(d) The assessment of credibility generally involves more than mere demeanour, the latter being mostly concerned with whether the witness appears to be telling the truth as s/he believes it to be. Memory becomes fainter with every day that passes and the imagination becomes correspondingly more active. Thus, contemporary documents are always of the utmost importance (see [29]-[30] of A County Council v M and F [2012] 2 FLR 939).
The second step, where a party objects to the admission of otherwise relevant evidence, is to undertake a balancing exercise. Though determined in the context of an application for disclosure against the local authority, the approach articulated by Maurice Kay LJ at [23] in Dunn v Durham County Council is the correct one. It was followed by MacDonald J in R v Secretary of State for the Home Department (Disclosure of Asylum Documents) [2019] EWHC 3147 (Fam). I observe that the Court of Appeal in Secretary of State for the Home Department and G v RH [2020] EWCA Civ 1001 at [52]-[54] endorsed the approach to disclosure taken by MacDonald J and confirmed that it had application to a wide range of documents where disclosure was sought in family proceedings.
The approach in Dunn v Durham County Council is as follows [23]:
“What does that approach require? First, obligations in relation to disclosure and inspection arise only when the relevance test is satisfied. Relevance can include “train of inquiry” points which are not merely fishing expeditions. This is a matter of fact, degree and proportionality. Secondly, if the relevance test is satisfied it is for the party or person in possession of the document or who would be adversely affected by its disclosure or inspection to assert exemption from disclosure or inspection. Thirdly, any ensuing dispute falls to be determined. We determined ultimately by a balancing exercise, having regard to the fair trial rights of the party
seeking disclosure or inspection and the privacy or confidentiality rights of the other party and any person whose rights may require protection. It will generally involve a consideration of competing ECHR rights. Fourthly, the denial of disclosure or inspection is limited to circumstances where such denial is strictly necessary. Fifthly, in some cases the balance may need to be struck by a limited or restricted order which respects a protected interest by such things as redaction, confidentiality rings, anonymity in the proceedings or such other order. Again, the limitation or restriction must satisfy the test of strict necessity.”

53. Insofar as an application might be made by an alleged perpetrator of sexual abuse to adduce evidence of a complainant’s sexual history with another individual, I find it difficult to envisage circumstances in which this would satisfy the test of relevance. How might such evidence about behaviour with person A make a complainant’s allegation of rape or sexual assault against an alleged perpetrator, person B, more or less probable? In making that observation, I do not intend that this should operate as an absolute bar on adducing such evidence since it is ultimately a matter for assessment by a particular court dealing with a particular case
More complicated is the question of relevance in relation to evidence of a complainant’s sexual history with the alleged perpetrator. The fact that adult parents had previously or subsequently engaged in consensual sexual activity of any sort does not mean that they were not raped or sexually assaulted on another occasion. However, evidence as to the parents’ sexual relationship may be logically probative of an allegation of partnership rape or sexual assault. Thus, communications between the parties of a sexual nature may well be relevant as may communications between them either before or after the relevant incident or time period. That approach is in keeping with the court’s obligation to consider the wide canvas of evidence and its duty to have regard to patterns of behaviour – both of the complainant and the alleged perpetrator – as described in Re H-N. It does not give an alleged perpetrator permission to produce any material that they wish if it is irrelevant and, if relevant, where it fails to meet the approach articulated in [23] of Dunn v Durham County Council.
Mr Metzer KC invited me to state that there would be a strong presumption against the admission of evidence relating to a complainant’s sexual history with an alleged perpetrator and to declare that the circumstances should be exceptional. I decline to do so. First, that approach runs contrary to current practice in the family court which has been centred on relevance and is free from presumption or starting point. It also runs contrary to the basic principle that, by adopting an inquisitorial approach, the court requires the best relevant evidence before it to assess both the risk posed by a parent or the welfare best interests of the child. Second, and practically speaking, the Appellant’s approach runs the risk of depriving the court of evidence relevant to its factual determination. I observe that there may well be circumstances in which evidence of sexual history as between partners is relevant to the court’s assessment of the dynamic, their respective patterns of behaviour and the nature of their relationship.
Based on the analysis above, I do not regard it as necessary for a party wishing to rely on evidence of sexual history between partners to make a specific application to the court for permission to do so. Practically speaking, this would add complexity and cost to already contentious children proceedings where a high proportion of litigants are self-representing.
Though not addressed in either the written or oral argument because it is not a matter at large in these appeals, I note that a complainant may wish to adduce evidence of an alleged perpetrator’s sexual history with other individuals to demonstrate a pattern of allegedly abusive behaviour (such evidence being described as similar fact evidence). The Court of Appeal in R v P (Children: Similar Fact Evidence) [2020] EWCA Civ 1088 set out the approach to be taken to the admissibility of such evidence at the case management stage in [19], and [23]-[24], emphasising the test of relevance and the need for the court to have available the best evidence to illuminate the subtle and persistent patterns of behaviour involved in coercive control, harassment and stalking.
In conclusion and to assist family judges in their case management task, I offer the following procedural framework, loosely based on that I articulated in Re M (A Child) (Private Law Children Proceedings: Case Management: Intimate Images) [2022] EWHC 986 (Fam), namely:
(a) If a party wishes to adduce evidence about a complainant’s sexual history with a third party, a written application should be made in advance for permission to do so, supported by a witness statement;
(b) It is for the party making such an application to persuade the court of the relevance and necessity of such material to the specific factual issues which the court is required to determine.
(c) Any such application will require the court’s adjudication preferably at a case management hearing.
(d) The court should apply the approach set out above at [45]-[49].
(e) If a party wishes to rely on evidence about sexual history between partners, they do not need to make a specific application to do so unless reliance is also placed on intimate images. In those circumstances, the party must issue an application in accordance with the guidance at [77]-[78] in Re M (Intimate Images).
(f) If a party objects to evidence of sexual history between parents/parties being filed, it should make an application to the court in advance, supported by a witness statement explaining why this material is either irrelevant or should not be admitted.
(g) Any such application will require the court’s adjudication preferably at a case management hearing.
(h) The court should apply the approach set out above at [45]-[49].

Finally, and probably the most interesting, the “rape myths” point. Should the Family Court Judge give themselves a similar reminder about some of the common misconceptions surrounding rape and alleged rape that a criminal Judge would give to a jury to provide valuable context?

Proposition 5: Whether, when determining allegations of rape and/or sexual assault, judges in the family court should give themselves a warning about rape myths. Generally, such myths concern themselves with the behaviour or experiences of a complainant.

Mr Metzer KC submitted that family court judges needed to have a full understanding about the types of rape myths/stereotypes which had been pervasive in the judicial system for a long time. He noted that Crown Court judges were advised to give specific directions to juries about the types of stereotypes which were common in cases of sexual assault. He drew my attention to the relevant passages of the Equal Treatment Bench Book (July 2022), to the Crown Court Compendium and to the Crown Prosecution Service Guidance found at “Rape and Sexual Offences – Annex A: Tackling Rape Myths and Stereotypes”. The latter guidance contained a comprehensive list, outlining various rape myths by category and which contained subsections dealing with intoxication, victim behaviour, sexual history, inconsistent accounts and a victim’s response to sexual assault. The CPS Guidance is a dynamic document which is regularly updated in accordance with new case-law. Mr Metzer KC submitted that this Guidance would be a useful starting point for judges to remind themselves of rape myths and stereotypes before and during any fact-finding exercise.
In response, Miss Fottrell KC noted that family judges are now required to have Judicial College training in relation to sexual assault awareness as well as to attend extensive training programmes on domestic abuse. If this court considered that there were further training issues which may benefit family judges, the appropriate course was to bring this to the attention of the head of the Judicial College, Lady Justice King. However, if the court considered that the CPS guidance and the Equal Treatment Bench Book were useful, it was invited to say so for the benefit of judges in the family court.
None of the other advocates suggested anything markedly different from the submissions made by Mr Metzer KC and by Miss Fottrell KC. All the advocates accepted that, anecdotally, family judges not infrequently directed themselves as to rape myths and stereotypes.

I have reflected very carefully on what it is appropriate for me to say on this matter. Judicial training is a matter reserved to the Judicial College. In my view, the College is best able to assess what training is needed for family judges determining factual disputes between parents about the nature of their relationship, especially where those disputes concern allegations of sexual assault. In that regard, I note that the Court of Appeal highlighted the training available to family judges in [67]-[68] of Re H-N as follows:
(67) Following the judgment of Russell J and at the request of the President, the Judicial College devised a freestanding sexual assault awareness training programme for Family judges. The programme draws heavily on the successful “serious sexual assault” programme for criminal judges. Since July 2020, it has been a mandatory requirement for all judges who hear any category of Family cases to undertake this programme. The programme, which is under constant review, includes elements in respect of psychological reactions to sexual assault and trauma, and has the benefit of contributions having been made by a number of victims of sexual assault discussing the impact that an attack has had upon them. In addition to the more general training in relation to domestic abuse, which is already in place for Magistrates, bespoke training suitable for the work they undertake in respect of sexual assault and trauma is in the process of being developed.

(68) This bespoke Family training these in turn into, and is further developed within, the extensive training programmes that are run in relation to domestic abuse by the Judicial College for the fee paid and salaried judges. These courses have been in place for some years and play a key role in both induction courses for newly appointed Family judges and continuation courses run for Family judges who are already in post.

On the basis that I have found what follows of assistance in my own practice as the lead judge for domestic abuse, I draw the attention of family judges to Chapter 6 of the Equal Treatment Bench Book (July 2022) entitled “Gender”. Under a subheading entitled “Sexual Offences: Who is Affected?”, there is information about sexual offences which includes several paragraphs addressing rape myths which may feature in criminal proceedings (see [74]-[91]). Though written to assist those sitting in the criminal courts, there is much in that section which family judges may find useful. The Equal Treatment Bench Book is publicly available on the judiciary.uk website at Equal Treatment Bench Book July 2022 revision (2) (judiciary.uk). Likewise, the CPS Guidance on Rape and Sexual Offences at Annex A provides a comprehensive guide to the unhelpful stereotypes which may cloud judicial thinking in cases involving sexual assault. It too is publicly available on the cps.gov.uk website and was last revised in May 2021: Rape and Sexual Offences – Annex A: Tackling Rape Myths and Stereotypes | The Crown Prosecution Service (cps.gov.uk).

I have also come to the view that I should not produce a list of common rape myths or stereotypes or attempt to craft a standard self-direction about sexual assault stereotypes which a family judge might give her/himself. No list would be comprehensive. Further, it would run the risk of creating a rigid framework to which adherence would be given. That would deprive a family judge of the flexibility to think about what is apposite in the particular case, having been appropriately trained to recognise unhelpful stereotypes, and should they consider it necessary to do so, for a family judge to draw attention in her/his judgment to the manner in which they have guarded against applying any relevant stereotypes. Secondly, any self-direction I might devise would be equally inflexible because it cannot encompass the great variety of stereotypical thinking outlined, for example, in the two sources to which I have referred.

Finally, Mrs Justice Knowles, did remark that in cases where findings of fact are made it is helpful to ensure that they are recorded in writing and ideally appended to the order made.

Finally, I have already commented on the failure by the judge to either produce his own schedule of findings or, if what I was told was correct, to endorse the schedule drafted by counsel. He was not alone in so doing, as the judge in the ABC appeal also failed to produce her own schedule of findings (though one was later produced by counsel at her invitation and attached to her order). Paragraph 29 of PD12J requires a schedule of findings to be attached to the court order following a fact-finding determination. In my view, it is desirable that, with the definitions of domestic abuse contained in PD12J firmly in mind when doing so, a judge produces her/his own schedule of findings, either incorporated into the body of a judgment or appended to its conclusion. That course avoids any lack of clarity about the detail of what the judge found, and any schedule can then be incorporated in or appended to the court’s order. I make this suggestion fully conscious of the pressures on the family judiciary engaged in what can often be a relentless train of successive fact-finding determinations, but it is not intended to make the task of judgment writing more difficult. On the contrary, I hope it represents good practice which may help to illuminate a judge’s evaluation of the evidence and to inform their ultimate findings.

Gender of ISW

This is a Court of Appeal decision arising out of a case management decision in private law proceedings. The father appealed a case management decision to instruct a female ISW, on the basis that it was a breach of his human rights – notably his article 9 rights to freedom of religious expression.

N (A Child), Re (Instruction of Expert) [2022] EWCA Civ 1588 (06 December 2022)

https://www.bailii.org/ew/cases/EWCA/Civ/2022/1588.html

I do slightly wonder why permission to appeal was given here (it is EXTREMELY hard to successfully appeal a case management decision ) , particularly given that the appeal process meant that the final hearing listed in the case had to be adjourned but the case does throw up some interesting elements.

The parents were both raised as members of the Hassidic Haredi Orthodox Jewish community, the father in the United States of America, the mother in England. In 2013, they underwent an arranged marriage in Jerusalem and thereafter lived together in Israel. In November 2014, the mother gave birth to A.

Within the proceedings, the mother was making complaint that some of the father’s religious practices due to his strict religious observance was making her home life intolerable. Within her complaint she raised that the father showed discomfort in the presence of women, including sometimes herself.

The Court was asked to approve the instruction of an expert to undertake an assessment of the family. The father had originally put forward a female ISW with a background in undertaking assessments of people within the orthodox Jewish faith. The application only put forward one ISW. The mother opposed this because she said :-

In her position statement, the mother’s counsel objected to the appointment of Ms Leifer, stating:
“The mother is concerned that Ms Leifer is associated with Ezer lyoldos, a Charedi organisation which works strictly within the Charedi community. This raises concern that she may be a biased choice. The Part 25 application does not propose any other expert which is unusual. The mother would prefer Cafcass to carry out the report as they are more likely to offer a neutral standpoint.”

The Judge agreed that enquiries should be made of CAFCASS to see if they had any workers with experience of carrying out work within the Orthodox Jewish community.

That didn’t really come to anything and thus both parents put forward alternative ISW experts. The father was putting forward a man, and the mother two women.

The Court decided to instruct one of the female experts.

The father appealed on the basis that :-

the order permitting the instruction of a female social worker is an infringement of his human rights.

Within the appeal, the father asserted that the Court’s case management decision was an infringement of both his article 6 right to fair hearing and article 9 right to freedom of religion and right to manifest his religious beliefs.

The Court of Appeal considered the issues in the case and broadly determined that the process that the trial Judge had followed to reach the decision was appropriate. They took into account that no evidence in relation to article 9 had been placed before the Court at first instance and that it had been raised only in submissions – and that certain steps by the father (not least the initial identification of a female ISW) undermined an assertion that only a male ISW could undertake the work without infringing father’s article 9 rights.

There was nothing in any document filed in the proceedings before the hearing on 20 July to suggest that the father objected to the instruction of a female independent social worker on the grounds that such an appointment would compromise his ability to engage in the proceedings due to his beliefs or that it would therefore be a breach of his right to a fair hearing under Article 6 and his right to manifest his religious beliefs under Article 9. It was only in oral argument before the judge that the father’s counsel suggested that given the father’s beliefs the appointment of a woman would be a breach of his Article 6 rights. This assertion was unsupported by any evidence filed by the father and undermined by a number of steps taken on his behalf in the course of the proceedings. In those circumstances, the judge was entitled to reject it.
In these circumstances it is not necessary to say whether it could ever be right to specify an expert of a particular gender. I do not, however, rule out the possibility that such an order could be justifi
ed. As ever, all will depend on the circumstances. Justice requires the court to adopt a procedure which pays due respect to persons whose rights are significantly affected by its decisions. It is, however, imperative that any application that the expert instructed be of one specified gender must be clearly explained and fully supported by evidence demonstrating why such a stipulation should be included.

King LJ in her judgment set out the Court’s powers to take creative steps to assist vulnerable persons in ensuring that their evidence can be given as fairly as possible and drew the parallel that the same can apply to assessments to be carried out.

I agree that the appeal should be dismissed for the reasons given by Baker LJ and Dingemans LJ. I would only add a little about the extensive case management powers available to judges which allow them to conduct proceedings in such a way as to give proper respect to the views and/or beliefs of those who appear before them, whilst at the same time ensuring that justice is achieved.
The well-known and well established ‘overriding objective’, found at FPR 2010 r.1.(1) is the procedural code designed to enable the court to deal with cases justly, having regard to any welfare issues involved.
The balance of the rule amplifies the proper approach to be adopted in order to achieve the overriding objective. This includes at FPR r.1.4(1) the requirement that the court “must further the overriding objective by actively managing cases”. The rule goes on at FPR 1.4(2) to set out 13 matters of active management which include at FPR r.1.4(2)(5) “controlling the use of experts” and at FPR 1.4(3) a total of 16 examples of the court’s case management powers which are in addition to those given by virtue of any specific enactment.
It is against the backdrop of these extensive powers of case management that, as noted by Baker LJ at paragraph 37, the appeal courts have repeatedly emphasised their reluctance to interfere with case management decisions made by a judge at first instance.
Those who drafted the Children Act 1989, and the judges at all levels who have sought to interpret it, have been conscious that in order to achieve the best possible outcome for children, whether in private or public proceedings, their parents and carers must be placed in a position so as to enable them to give their best evidence.
Statutory examples include s98(2) Children Act 1989 which provides for a statement or admission made in care proceedings not to be admissible in evidence in proceedings for an offence other than perjury. In Re X (Disclosure of Evidence) [2001] 2 FLR 440, Munby J, in that context, emphasised that the interests of a child are served by encouraging frankness and the importance of encouraging people to tell the truth in cases concerning children.
A further, but very different, example is the use of intermediaries and of physical special measures (screens, separate entrances and the like) designed to enable those who are vulnerable or victims of domestic abuse to attend court and to give their best evidence. The FPR r.3A.4 and r 3A.5 specifically require a court to consider “whether the quality of evidence given by a party or witness is likely to be diminished by reason of vulnerability”.
In Re A (Sexual Abuse: Disclosure) [2012] UKSC 60, [2013] 1 FLR 948 (para 36), Baroness Hale referred to the flexibility inherent in family proceedings and said that “The court’s only concern in family proceedings is to get at the truth. The object of the procedure is to enable witnesses to give their evidence in the way that best enables the court to assess its reliability”.
In Re S (Practice: Muslim Women Giving Evidence), [2006] EWHC 3743 (Fam), [2007] 2 FLR 461, Macur J made arrangements by way of screens and the ingenious use of a large umbrella, so that she could see the witness, but that the litigant’s male counsel would not be able to see his lay client. In this way the Muslim woman litigant, who was accustomed to wearing the veil, was able to remove her veil whilst giving oral evidence. Macur J stressed the importance of witnesses in family cases being able to present their evidence to the satisfaction of the court. Macur J however also sounded a note of caution, saying that “Each case must obviously be looked at in its own circumstances, and the court must be alert to any opportunistic attempt to derail proceedings”.
The need to obtain the best possible evidence applies equally to that part of proceedings which takes place before the hearing, whether in the form of assessments or the commissioning of expert’s reports. The court has at its disposal the raft of case management powers referred to above which will enable it to find creative solutions to any difficulties which may be thrown up as Macur J did in Re S and as did the appellant in the present case. The court was informed that the appellant had used an intermediary and a telephone, without a video link, in order to enable him to give instructions and to take advice from his female solicitor.
As highlighted by both Baker LJ and Dingemans LJ the court will not however be in a position to utilise these case management powers in order to identify a way around a potential problem unless and until the problem in question has been properly identified, put before the court and where necessary, evidence adduced in relation to the same.

Relaunch the PLO – 26 weeks back again?

The President of the Family Division has published the latest View

The link doesn’t seem to work so it is

https://www.judiciary.uk/guidanceandresources/a-view-from-the-presidents-chambers-november-2022/

Basically as all of us working in Family Justice know, due to the immense pressures on the Court service anyway and exacerbated by the Covid pandemic – which took Tier one out of the picture for two years and caused a huge backlog, in many cases now where the evidence is all gathered and ready for final hearing it is taking four-six months to get a final hearing.

That knowledge had a knock-on effect – what was the value in professionals busting a gut to get all of the evidence ready by a week 20 IRH when there was NO possibility whatsoever of getting a final hearing in the 6 weeks after that to hit 26 weeks?

And so drift came back in to the system.

The President is now saying, this is the time to restart thinking about 26 weeks and trying to achieve it. I don’t know where they are magically going to summon up Judges to clear the backlog of cases (frankly, it probably requires a year of getting every single Recorder with a care ticket to sit more or less full time, to get rid of those and allow a clean start)

But the President does have some suggestions – really centred around the issue that if you take directions hearings out, or at least greatly reduce them, you’ll have more space in the diary for final hearings.

So, the big ideas are :-

  1. Care proceedings should have 3 hearings only. The third one should be the final hearing. I.e, you have an ICO hearing/CMH, an IRH and a final hearing. If you reduce the number of hearings that have to be squeezed into a Court diary, then more of the space available in that diary can be used for final hearings, so you’ll wait less time for one.
  2. Parents are to identify alternative family members for assessment by the time of the CMH (or within a week of it). At the moment, I think that the delay in care proceedings is generally at the IRH-waiting for final hearing stage, rather than the being ready for IRH stage, but it would obviously be better to identify family members and do that assessment as early as possible. I’ve been talking about the “Auntie Beryl” problem for years – that it is at the point where parents realise that adoption is being recommended that they really dig deep into family and find someone who would offer to be assessed, and is a Court ever going to turn down a realistic proposal that comes in late – especially with the Re B-S and Re B guidance about adoption being “nothing else will do”. I think this is a good proposal, but we’ve heard it all before, and are Judges genuinely going to be backed by the Court of Appeal if they refuse assessments of family members put forward at week 18? (and even if they do, is that actually a good thing?)
  3. Cut down on experts – the statistics apparently are that expert instructions have gone up 33% since 2016. I wonder what proportion of that are having to do updating hair strand tests because the final hearing is months later than hoped for. It’s probably no bad thing to remind everyone of the strictures of Part 25 and it does seem over the last few years that we’ve drifted back to a feeling of experts being the norm rather than the exception.
  4. Limiting the issues to be considered by the Court at final hearing – is threshold satisifed, where should the child live, what are the contact arrangements, what final orders should be made? That’s what the Children and Families Act 2014 said the Court HAD to consider at final hearing, but in practice it has been difficult. What is a Court to do where the plan is, for example for a parent and child to move from a parent and baby placement into the community but the housing is simply not available?
  5. Robust case management and focus on compliance with orders, making every hearing count and so on.

Without the ability to pump more resources into the system – which isn’t within the President’s gift and if anything the direction of travel with public finances will be less resources rather than more, these are all sensible practical proposals to do more with what we have.

I suspect we’ll also see much stricter marshalling of Court resources when setting time estimates for final hearings – advocates may have to really be able to justify their time estimates for witnesses and I suspect there will be a downward pressure to make 5 day hearings fairly exceptional, and 3-4 days becoming the norm. That obviously makes it harder for the judiciary because reading time and thinking time to construct the judgment within working hours becomes harder to hang on to.

If I had a magic wand, these would be my two additions.

  1. When the case is issued by the Local Authority, the Court find a 3 day final hearing slot between weeks 20 and 26 at the time of issue, or as close to it as can be managed. If those days end up not being needed, so be it, they can always be used for something else (the cases that go 4 or 5 days instead for example), but everyone starts the case KNOWING when the case should conclude. Probably at the moment, those final hearing dates are 9-10 months away, but as we work through the new batch of cases the time lag between IRH and final hearing comes down. Until we can have honest and robust conversations about the lag between IRH and final hearing, we can’t really address this central problem in cases. (I’ll make it plain – it isn’t the Court’s fault that it takes so long to get a final hearing, it is a symptom of overwork and under-resourcing)
  2. I would honestly nuke the ADM as a gatekeeper for Local Authorities making Placement Order applications. If the Local Authority are wrong in seeking adoption as the plan, let that be thrashed out before the Court and the Court make the decision. What’s the benefit of building a 2-3 week hold-up in care proceedings to allow an internal Local Authority piece of gatekeeping when the Court is going to make the decision anyway? This is nothing against ADM’s who are good people and work hard but if the decision on ASKING for a Placement Order sat with the social work manager (or the next tier of management), would that genuinely make things any worse for the child? The unsatisfactory applications will be refused by the Court in any event.