The Authority of the Attorney General to Stay Proceedings
The right and duty of the
Attorney‑General -- as chief law officer of the Crown -- to supervise criminal
proceedings (both indictable and summary) is a fundamental part of our criminal
justice system.
Unlike the authority to
withdraw charges, the authority of the Attorney General or an instructed agent
to direct entry of a stay of proceedings is statutory. It is found at section 579 of the Criminal Code.
There is no statutory
power in a court to stay proceedings. A court’s
ability to stay an information or charge is found within the common law (a
subject which I will leave to another day).
The Ability to Stay “Proceedings”
While the Attorney General
along with its counsel has the authority to direct that proceedings be stayed, the Criminal Code provides no definition
of the term “proceedings”.
It is well-settled,
however, that criminal proceedings
are instituted or commenced by the laying or receipt of an information.
R. v. McHale,2010 ONCA 361 (CanLII), at para. 43, 70.
Section 579(1) permits the
direction to enter a stay to be given “at any time after any proceedings in
relation to an accused…are commenced”. This permits the Attorney General to
enter a stay of proceedings on an information laid before a justice prior to
determination by the justice as to whether or not to issue process.
See Re Dowson and the Queen, 1981 CanLII 87 (ON CA), 62 C.C.C. (2d) 286.
This
differs from the Crown’s ability to withdraw an information or charge, which
commences when the criminal prosecution
begins, the point at which process is issued.
The
entry of a stay is a statutory administrative discretion given to the
Attorney-General, and, if exercised, its direction is to the Clerk of the Court
as such and is outside the control of the judge.
R. v.
Smith, 1992 CanLII 325 (BC CA), at para 22;
Regina v. Beaudry, [1967]
1 C.C.C 272 (BCCA).
The Process
To implement the stay
authority, the Attorney General or instructed agent must direct the clerk or
other proper officer of the court to make an entry on the court record, for
example, the information or indictment, that proceedings are stayed by the
direction of the Attorney General or instructed agent. The entry is to be made
on the record forthwith. The entry has the effect of staying proceedings
and vacating any recognizances.
Effect of a Stay
When a stay
has been entered, the Crown can continue with the proceedings without laying a
new information by giving notice of recommencement within one year after the
stay has been entered. Thus, for that period for time, entering a stay of proceedings has the effect merely of suspending the
proceedings.
If the proceedings are not
recommenced within this time, the proceedings are deemed never to have been
commenced.
Section
579(2), Criminal Code.
When the Attorney General
exercises its right to stay proceedings against an accused, there is no cause
or proceeding in the courts against the accused, and hence no relief to be
granted by the court. The judge becomes functus with respect to the proceedings
and has no jurisdiction to continue further in the matter.
R. v.
Fosseneuve, 1983 CanLII 2363 (SK QB), at para. 8;
R. v.
Smith, 1992 CanLII 325 (BC CA), at para 25.
CRIMINAL CODE.
Attorney General may direct stay
579 (1) The
Attorney General or counsel instructed by him for that purpose may, at any time
after any proceedings in relation to an accused or a defendant are commenced
and before judgment, direct the clerk or other proper officer of the court to
make an entry on the record that the proceedings are stayed by his direction,
and such entry shall be made forthwith thereafter, whereupon the proceedings
shall be stayed accordingly and any recognizance relating to the proceedings is
vacated.
Recommencement of proceedings
(2) Proceedings
stayed in accordance with subsection (1) may be recommenced, without laying a
new information or preferring a new indictment, as the case may be, by the
Attorney General or counsel instructed by him for that purpose giving notice of
the recommencement to the clerk of the court in which the stay of the
proceedings was entered, but where no such notice is given within one year
after the entry of the stay of proceedings, or before the expiration of the
time within which the proceedings could have been commenced, whichever is the
earlier, the proceedings shall be deemed never to have been commenced.
Stuart
O’Connell, O’Connell Law Group, www.leadersinlaw.ca
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