38.
Taking the majority approach, Chester is a victim for the purposes of
section 7 of the Human Rights Act, but this means that he satisfies a pre-condition
to, not that he is necessarily entitled to any particular relief in, a complaint about
the general disenfranchisement of prisoners from voting in United Kingdom and
European Parliamentary elections which results from EPEA section 8(2) and (3),
read with RPA section 3. He claims a declaration that both RPA section 3 and
EPEA section 8(2) are incompatible with A3P1. (I note that, in contrast, under
European Union law, his primary submission in relation to EPEA section 8(2) is
that it can be rendered compatible with European Union law by reading in an
additional right to vote in European Parliamentary elections “if necessary to
comply with European Union law”.)
39.
The incompatibility of RPA section 3 with A3P1 was recognised by the
Registration Appeal Court in Smith v Scott 2007 SC 345, which made a declaration
of incompatibility. That declaration was properly made in the case of a convicted
person sentenced to five years’ imprisonment for being concerned with supply of
controlled drugs. It entitled the Government to use the remedial order provisions
contained in section 10 of the Human Rights Act. The Government decided not to
do this. The issue is now however before the United Kingdom Parliament and
under active consideration in the light of the decisions in Hirst (No 2), Greens and
Scoppola. Further, it is clear from Greens (para 18 above) and the Attorney
General accepts that EPEA section 8 is, in relation to European Parliamentary
elections, as incompatible with A3P1 as RPA section 3 is, in relation to United
Kingdom Parliamentary elections. A declaration is a discretionary remedy, both
generally and under the Human Rights Act 1998, section 4 (4). There is in these
circumstances no point in making any further declaration of incompatibility. On
this I am in agreement with both Burton J at first instance, [2009] EWHC 2923
(Admin), and the Court of Appeal, [2010] EWCA Civ 1439, [2011] 1 WLR 1436.
The Strasbourg Court’s own decision in McLean and Cole to defer consideration
of applications concerning future elections in the light of the ongoing
Parliamentary process is also consistent with this view.
40.
Further, it can, I consider, now be said with considerable confidence that
the ban on Chester’s voting is one which the United Kingdom Parliament can,
consistently with the Convention right, and would maintain, whatever amendments
it may be obliged to make or may make to allow any prisoners detained for
different reasons or periods to vote. In the original Chamber decision in Hirst
(2004) 38 EHRR 825, reference was made to the continuation of the ban on voting
after the expiry of the tariff period in the case of a life prisoner as an “additional
anomaly” (para 49). Nevertheless, the Chamber went on to say that it could not
“speculate” as to whether Hirst, whose tariff had expired, “would still have been
deprived of the vote even if a more limited restriction on the right to [sic] prisoners
to vote had been imposed, which was such as to comply with the requirements of
[A3P1]” (para 51). It is notable that the majority in the Grand Chamber in Hirst
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