33(1) If a detained person is an Aboriginal person or Torres Strait Islander, then, unless the custody manager for the person is aware that the person has arranged for a legal practitioner to be present during questioning of the person, the custody manager must:
(a) immediately inform the person that a representative of the Aboriginal Legal Service (NSW/ACT) Limited will be notified:
(i) that the person is being detained in respect of an offence, and
(ii) of the place at which the person is being detained, and
(b) notify such a representative accordingly.
11 The custody manager dealing with each of the plaintiffs read to him a document entitled "Caution and Summary of Part 9 of the Law Enforcement (Powers and Responsibilities) Act 2002 (LEPRA)", and gave him a copy of that document. Among other things, the document informed them of their right to silence and their right to seek legal advice. It also informed them of their right, as Aboriginals, to have a support person with them. However, it said nothing about the obligation of the custody manager under cl33.
12 The evidence was that all three police officers knew that the plaintiffs were Aboriginals. The officers were familiar with the LEPRA requirements, including cl33. The Aboriginal Legal Service in the relevant area was the South Eastern Aboriginal Legal Service, to which I shall refer as the "ALS". It had been the practice of the custody managers to notify the ALS by fax if an Aboriginal person came into their custody, but his Honour found that none was sent on these occasions. In any event, to do so would have been a futile exercise. As the plaintiffs had attended the police station outside ordinary business hours, it was most unlikely that there would have been anyone at the ALS office. This also the police knew.
13 In the event, none of these plaintiffs had a lawyer present when interviewed or had access to a lawyer immediately before being interviewed. (Garry Campbell had his father with him as a support person during his interview, but nothing turns on this for present purposes.) His Honour found that cl33 had not been complied with, so that the plaintiffs were interviewed at a time when their custody was tainted by illegality. Accordingly, a question arose whether evidence of the interviews should be rejected pursuant to s138(1) of the Evidence Act 1995, on the basis that it had been obtained in contravention of an Australian law. That being so, it could not be admitted unless his Honour was satisfied that the desirability of doing so outweighed the undesirability of admitting it, given the way in which it had been obtained. In practical terms, then, it was for the prosecution to show that the evidence should be admitted notwithstanding the illegality attending it.
14 It was this balancing exercise which his Honour undertook, having regard to the relevant factors set out in s138(3). Putting aside cl33, he noted that the police had "sought to comply with the guidelines" given to them by the relevant legislation. In addition to the information conveyed to them about their rights, both orally and in writing, by the custody managers, his Honour noted that each of the plaintiffs had been cautioned at the outset of his interview. Thus, he found, it could not be said that the police "deliberately went out of their way to cut corners and provide no assistance" to the plaintiffs concerning their rights "and the responsibilities the police had towards them".
15 As to the breach of cl33, apart from finding that no fax had been sent to the ALS prior to any of the interviews, his Honour referred to the fact that that course would have been futile in the circumstances. Further, he found that sending faxes after hours had been "a general procedure" of the police, despite their knowledge that there would almost certainly be no response because a practice had developed that there was no ALS representative at the office after hours.
16 In the result, these four plaintiffs were interviewed without the ALS being notified of their being at the police station, and at a time when, realistically, no such notification was possible. His Honour referred to cl33 as a "mandatory provision" and conveyed a clear understanding of its purpose and significance. Nevertheless, he exercised his discretion to admit the evidence because he found that the LEPRA requirements had been met in other respects and because "there was no guarantee" that, if the interviews had been postponed to the following day, an ALS representative would have been available to attend the police station and speak to the plaintiffs. In my view, that last matter raises an important issue which did not receive the attention it deserved in evidence or in submissions on the voire dire.
17 The plaintiffs were represented in the Local Court by Mr King of counsel. He also appeared in this Court, assisted by Ms Behrendt as his junior. In cross-examination of one of the custody managers, Sgt Flood, he raised the possibility of adjourning the interviews to the following day during business hours. Sgt Flood said that he "could have told the arresting officer to cease the interview," but added that "he's the arresting officer." The sergeant had a point. The interviewing officer, Snr Cst Barry had given evidence on the voire dire before Sgt Flood. The matter was not raised with him and, of course, it should have been.
18 To do so was as much the responsibility of the prosecutor as it was of Mr King. As I have said, for the purpose of the issue under s138 of the Evidence Act, it was the prosecution which bore the burden of satisfying the magistrate that the evidence should be admitted. From the fact that Snr Cst Barry had asked the plaintiffs to attend the police station voluntarily, and they had done so, it is reasonable to infer that he did not fear that any of them would attempt to evade arrest. Why they had to be arrested and interviewed on the evening they attended is not apparent. Whether or not there was good reason why those procedures could not have waited until the following day, and whether or not an ALS representative would have been available to assist them during ordinary business hours, were matters which were not explored in the evidence.
19 I should record that later in the proceedings, after his Honour had ruled on a submission that there was no case to answer, Mr King tendered a letter from a solicitor at the ALS which confirmed that no fax had been received from the police concerning the detention of any of these plaintiffs. It also asserted that a representative of the ALS would have attended a police station "during working hours" if requested to do so by any of them. It added that, if the ALS had been notified outside working hours of a request for a representative to attend during an interview, it would have asked the police to arrange for the interview during working hours and a representative would then have attended. At that stage of the proceedings, of course, the voire dire had been completed and his Honour had given his ruling. I do not think it appropriate for me to have regard to this evidence for present purposes. That said, it is reasonable to infer that any notification to the ALS made during business hours would have been received and that the attendance of a representative at the police station within a reasonable time could have been arranged.
20 The fact remains that the plaintiffs were interviewed at a time when cl33 had not been complied with and when, to the knowledge of the police, there could not have been effective compliance. No explanation was forthcoming on the evidence on the voire dire for the interviews being conducted at the time they were, rather than at another time when the requirements of cl33 could have been met. As the evidence stood, the failure to comply with the clause was deliberate, a relevant matter by virtue of s138(3)(e) of the Evidence Act.
21 His Honour's judgment on the voire dire does not deal with this issue, a fact which can fairly be attributed to the way in which the proceeding had been conducted. I am mindful that it is not appropriate to subject to detailed analysis the ex tempore reasons of a magistrate in a busy local court: Acuthan v Coates (1986) 6 NSWLR 472, per Kirby P at 478-9. However, a crucial matter in the balancing exercise to be undertaken under s138 is the gravity of the contravention of the law which brought the section into play: subs 3(d). An important matter bearing upon the gravity of the contravention in the present case was not taken into account by his Honour. Accordingly, I am satisfied that the exercise of his discretion miscarried.
22 I should observe, in passing, that the obligation under cl33 is twofold: not only to notify the ALS that an Aboriginal person is in detention, but also to inform that person that the ALS will be notified. That additional requirement is itself an important safeguard, ensuring that the suspect is aware of the availability of legal assistance through that organisation. As I have earlier noted, the document summarising the LEPRA procedures which was furnished to the plaintiffs is silent about the requirements of cl33. This is not an issue which appears to have been raised at all on the voire dire in the present case and, of course, it is in no sense determinative of this appeal.