Statutory Interpretation The Technique of Statutory ... - Francis Bennion

156 Part II — Statutory Interpretation
Principle that municipal law should conform to public international law
It is a principle of legal policy that the municipal law should conform to public international law. The
court, when considering, in relation to the facts of the instant case, which of the opposing
constructions of the enactment would give effect to the legislative intention, should presume that the
legislator intended to observe this principle.
Public international law is what used to be called the law of nations, or jus gentium. A rule of public
international law which is incorporated by a decision of a competent court then becomes part of the
municipal law {Thai-Europe Tapioca Service Ltd v Govt of Pakistan [1975] 1 WLR 1485, 1495. Or,
under the principle known as adoption, a rule of international law may be incorporated into
municipal law by custom or statute. It is an important principle of public policy to respect the
comity of nations, and obey treaties which are binding under public international law. Thus Diplock
LJ said:
. . . there is a prima facie presumption that Parliament does not intend to act in breach of [public]
international law, including therein specific treaty obligations; and if one of the meanings that can reasonably be
attributed to the legislation is consonant with the treaty obligations and another or others are not, the meaning
which is so consonant is to be preferred. {Salomon v Commrs of Customs and Excise [1967] 2 QB 116. 143).
European Convention The European Convention on Human Rights (Cmnd 8969) entered into force
on 3 September 1953. To date it has been ratified by 22 nations, including the United Kingdom.
For these it imposes the usual obligations and rights under a treaty in public international law. The
machinery for enforcement of these consists of the European Commission of" Human Rights and the
European Court of Human Rights, both of which operate at Strasbourg. The United Kingdom has
accepted the right of individual petition to the Commission, but has not made the Convention part of
its municipal law.
It follows that the Convention does not directly govern the exercise of powers conferred by or under an
Act {R v Secretary of State for the Home Department, ex pane Fernandes (1980) The Times 21 November;
R v Secretary of State for the Home Department, ex pane Kirkwood [1984] 1 WLR 913). However it is
presumed that Parliament, when it passes an Act, intends it to be construed in conformity with the
Convention, unless the contrary intention appears.
Judicial notice Judicial notice is taken of rules and principles of public international law, even when
not embodied in municipal law {Re Queensland Mercantile and Agency Ltd [1892] 1 Ch 219, 226).
This also applies to treaties made by the British Crown. As Scarman