Phil Edwards
posted a short essay on The Conversation a few days ago in which he articulates his concerns with the
Counter-Terrorism and Border Security Bill, the latest piece of counter-terrorism legislation to be brought before Parliament. This Bill, says Phil, was "justified" by Sajid Javid "as a way of ensuring that 'the police have the powers they need to protect us'". Now, my hackles are already raised here because of the use of the word "justified" - Javid didn't
justify the legislation thus, though he may well have
attempted to do so. To say that he justified it is to concede that his attempt was successful, and since Phil goes on to imply that the thinks that the Bill is open to serious criticism, Javid can't have justified it. I know that a lot of lawyers use "justify" to mean "attempt to justify", or "defend", as well as... well "justify", but I do think that the distinction is important and worth maintaining. I think that the lawyer's use of the word opens the door to a whole load of trouble. After all, if you can't distinguish attempt from success in any enterprise, you're probably screwed.
But I digress... already. Despite being less than a thousand words long, there's a lot crammed into Phil's piece. Distilling the essence of the essay, I think that we'd end up with something like this:
- There are certain "precursor" activities that, though not terroristic in themselves, might nevertheless be subject to prosecution on the basis that they are precursors to terrorist activity.
- Laws that criminalise precursor activities may be worthy of our disapprobation in their own right.
- Such laws may be worthy of "second order" disapprobation, on the basis that they are (likely to be) inconsistently applied.
- This is because inconsistent application of a law is a violation of the Rule of Law.
- An appeal to Lon Fuller can help us understand the move from (3) to (4).
I want to concentrate here on one aspect - the final one - though there'll be the original shoutout to others. But, in the spirit of being as candid as possible about my commitments, I suppose it's worth laying out a couple of responses to the parts Phil's argument that I'm going to bracket for now. Thus, for example, I don't have any problem in principle with the idea of precursor crimes. There're times when it seems to me perfectly proper to intervene to prevent a risk being realised. While it's true that there's always a chance that a person planning to commit a crime might stop short of doing so even though fully prepared, it seems reasonable for the law to be concerned about that preparation. Now, quite
how prepared one would have to be in order to be the proper object of legal concern is a further question, and I'm not sure how the law ought to draw the line here. I'm also not sure that it necessarily has to; setting out too rigid a list of criteria might force juries to convict the plain fantasist, and to acquit the genuine danger, simply because of the way the law has been drafted.
With that said, it is likely that we ought to worry about inconsistent application. Whether that worry can be soothed, granted the idea that it's desirable to avoid rigid criteria for prosecution and conviction is uncertain. It might be that the price we pay for desirable flexibility is the risk of inconsistency. Whether or not that's a price we should pay is not immediately obvious; it needs more in-depth consideration than I can give it here. Maybe we have to pay attention to the distinction between apparent and actual inconsistency, on the understanding that instances of the former may not be instances of the latter.
One thing that would seem to make the price too high would be an erosion of the Rule of Law
tout court. A world in which nobody can be certain whether and how the law will respond to their actions is a world in which the Rule of Law seems not to obtain: rather, we'd have the Rule of Agents of Law, or Rule of Prosecutors, or Rule of Judges, or something like that. And this is where Fuller comes in.