Grounds 3 and 4
72Grounds 3 and 4 are also best dealt with together. These grounds are in the following terms:
3. The sentencing judge erred by finding, without evidence, that the normal street purity of methylamphetamine is between 3 and 5 per cent.
4. The applicant was denied procedural fairness in that, contrary to the indication given to the parties during submissions and without providing the parties with an opportunity to be further heard in relation to the question, the sentencing Judge found that the purity of the drug supplied was greater than normal street purity.
73The substance of the argument comes down to two propositions: first, it was simply impermissible for the sentencing judge to take judicial notice of the "normal street purity" of the drugs involved and, secondly, his Honour ought not to have acted on his own inquiries about this topic unless he first gave the parties an opportunity to further address him about it.
74The finding that the purity of the drug was greater than "normal street purity" was made by reference to previous decisions of this Court in R v Parkinson and Shaaban v R. During addresses below the applicant's legal representative (not Mr. Wilson who appeared on the appeal) submitted the drugs supplied were "of pretty poor purity" (Tcpt p 10(45)). This drew a question from his Honour "purity is about street value purity?" To which the advocate answered "yes, yes, thank you, your Honour those are my submissions" (Tcpt p 10(50)). His Honour's question cannot be properly understood as indicating acceptance of the submission about purity. Quite the contrary.
75On the hearing of the appeal the Court permitted the tender of An environmental scan on alcohol and other drug issues facing law enforcement in Australia 2010, a paper by Roger Nicholas of the National Drug Law Enforcement Research Fund, and New South Wales Drug Trends 2012: findings from the Illicit Drug Reporting System (IDRS) (2013) by J Van Buskirk and Lucy Byrnes of the National Drug and Alcohol Research Centre, University of New South Wales. The purpose of the tender was to demonstrate that the question of "normal street purity" is a question of contestable fact, or to put it another way, a question of "adjudicative fact".
76Writing in Cross on Evidence, 9th Australian Edition, Butterworths 2004, (Cross) J D Heydon (at p 145 [3005]) stated:
In the case of adjudicative facts, the doctrine of judicial notice has restricted scope, for in the common law system, the facts are appropriately determined on the evidence presented by the parties, unless the fact is of such notoriety that to call for evidence would be a waste of time.
As to whether "the doctrine of precedent applies to a judicially noticed fact" so that a judge may inform herself or himself by reference to a previous decision where judicial notice was taken, Cross states (at p 146):
...where the fact so found is an adjudicative fact, its impact on subsequent trials stems not from its judicial authority but from its notoriety which is presumably evident to all courts.
77A judge is entitled to take judicial notice of a notorious fact after inquiry, notwithstanding that this proposition contains an obvious contradiction: Cross p. 156 [3025]. It is clearly established, however, that a court is not entitled to act upon judicial memory refreshed by inquiry without giving the parties notice of its intention "and an opportunity to be heard on the results of its researches": Cavanett v Chambers [1968] SASR 97 at 101 per Bray CJ. In International Finance Trust Company Limited & Anor v NSW Crime Commission & Ors [2009] HCA 49; 240 CLR 319 at 382 [146] Heydon J said:
The court is not entitled to take judicial notice of particular matters of fact after inquiry without notifying the parties of the inquiry and giving them the opportunity to controvert or comment on the source on which the inquiry is made.
78This Court has taken judicial notice of "the normal street purity" of drugs. The cases are those referred to by the sentencing Judge. In R v Parkinson (2001) 125 A Crim R 1 at [10] Howie J (Barr J agreeing) said:
Although the normal street purity of amphetamine is said to be 3-4%, the purity of the drug the subject of this charge was 7% and, therefore, the drug could be cut down by some other substance to produce 118 grams of amphetamine which could be resold at street level.
Shaaban v R [2007] NSWCCA 115 at [10] is to the same effect, although Parkinson is not referred to. In the passage I have quoted, Howie J refers to amphetamine, but the drug involved was "methylamphetamine", the same drug as in the present case.
79The basis upon which judicial notice of drug matters is taken was explained by RS Hulme J in two cases. In R v Stanbouli (2003) 141 A Crim R 531; [2003] NSWCCA 355 at [106]-[107] his Honour (Spigelman CJ and Carruthers AJ agreeing on this issue) said:
[T]he topic of heroin usage, price and purity comes often before the Courts and has been dealt with sufficiently often in published research material for judicial notice to be taken of it - cf R v Henry (1999) 46 NSWLR346 at 360-366, 399-403.... The figures I have used, other than those in the immediately preceding paragraph where I have stated the source, are more than supported by data contained in the 1998-99 Australian Illicit Drug Report published by the Australian Bureau of Criminal Intelligence. Support for various of them is also to be found in "Australian Drug Trends, 1999", published by the National Drug and Alcohol Research Centre, a Research Report by Darke, Topp, Kay and Hall entitled "Heroin use in New South Wales, Australia, 1996-2000" published by that Centre, and an Article "Heroin Purity and composition in Sydney, Australia" by Maher, Swift and Dawson in the 2001 Drug and Alcohol Review (though it should be said that the survey the subject of that article was performed on drugs seized in 1996 and 1997).)
In this area precision is neither possible nor required. The Respondent is not being sentenced for the harm the heroin he helped import did.
80Stanbouli should be read with Ma and Pham v R [2007] NSWCCA 240 where RS Hulme J (with McClellan CJ at CL and Hoeben J agreeing) expressed the following view at [51]-[52]; [54]:
However, regrettably, the experience of courts with drug offences is vastly greater now than it was then. So, I suspect, is the published material. That presently available includes: "NSW Drug Trends 2006; Findings From the Illicit Drug Reporting System (IDRS)" by E. Black et al, NDARC Technical Report No 270 (University of New South Wales); "The Effect of a Reduction in Heroin Supply on Fatal and Non-Fatal Drug Overdoses in New South Wales, Australia", by Degenhardt L. et al, (2005) 182 The Medical Journal of Australia; "Heroin Markets in Australia: Current Understandings and Future Possibilities", by T J Moore et al, Drug Policy Modelling Project, Monograph 09, (Turning Point Alcohol and Drug Centre Inc).
Judge Morgan was thus entitled to take judicial notice of the purity of drugs commonly to be found in cases coming before the courts and to make a judgment of where, relative to the levels of purity commonly seen, the purity of the drugs in the case before her fell. ...
Furthermore, if judicial notice is to be taken of matters such as purity commonly experienced in the Courts, the particular matters must be such as to be, or be virtually - and for present purposes it is unnecessary to explore the difference - beyond argument.
81From his Honour's reference to "judicial notice"; to the experience of Courts with drug offences; and the literature that is available to judges about illegal drugs, RS Hulme J should not be taken as suggesting in any way that the District Court is a "specialist tribunal" when it comes to dealing with drug offences: cf Strinic v Singh [2009] NSWCA 15; 74 NSWLR 419. Rather judicial notice may be taken of facts which are notorious, whether or not the notoriety is established after inquiry. The point his Honour was making is simply that with the far greater experience of the courts with drug offences and with the advances in knowledge due to literature of the category his Honour mentioned, matters like "normal street purity" have acquired sufficient notoriety for judicial notice to be taken whether or not inquiry is first made. By definition, if judicial notice may be taken of a fact, it is unnecessary to receive evidence about it.
82As I have already pointed out, a decision based on judicial notice about "normal street purity" of a particular drug "cannot provide a precedent in the legal sense, as in the case of a decision upon a matter of law, [but] other courts can be expected more readily to accept judicial knowledge of the basic facts leading to the conclusion and hence the conclusion itself": Saul v Menon [1980] 2 NSWLR 314 at 326 (by Moffitt ACJ); see also National Trustee Executors and Agency Co of Australasia Ltd v The Attorney General (Victoria) [1973] VR 610 at 612.
83In my judgment, his Honour was entitled to take judicial notice of the "normal street purity" of methylamphetamine, and was entitled to refresh his judicial memory by reference to Parkinson and Shaaban.
84As Cross points out (page 173-4 [3125]), strictly, evidence in rebuttal of a fact judicially noticed is inadmissible. The learned author continued:
Similarly, evidence that a particular practice was not followed on a particular occasion would not rebut the existence of the practice of which judicial notice is taken; nor, strictly speaking, would evidence of a change of practice, for judicial notice is simply taken of the current practice at the particular time.
The sentencing Judge was entitled to draw upon "the store of judicial knowledge" of which the previous decisions of Parkinson and Shaaban form part. From them his Honour was entitled to take notice that "normal street purity" of methylamphetamine is in the range of 3 to 5 percent. But this did not prevent the applicant leading evidence to demonstrate, if he could, that things had changed since those decisions were made by reference, say, to the 2012 publication. And this consideration gives rise to the difficulty in the present case.
85By his question, his Honour properly indicated that purity in absolute terms is not the issue; the issue was "normal street purity". But, as the extract from International Finance Trust demonstrates, his Honour was not entitled to refresh his memory in chambers by reference to those cases "without notifying the parties of the enquiry and giving them the opportunity to controvert, or comment, on the source in which the enquiry is made". As Bray CJ pointed out in Cavanett even where the information is "of an uncontroversial nature" the Court should give the parties notice and an opportunity to be heard on the result of its researches.
86In ST v R [2013] VSCA 133 Ashley, Redlich and Priest JJA said:
It is axiomatic that a judge may not search for, or take account of, information that is not in evidence, save where a fact is of such notoriety that a judge may take judicial notice of it.
At [40] their Honours explained:
One must distinguish the process of modern litigation where a judge is frequently provided with material which does not end up in evidence or where a judge is required to rule upon evidence which it is concluded is inadmissible. It is assumed that a judge then has the capacity to put from his or her mind evidence which has been seen or heard but which is not relevant or admissible to the determination of the questions before the court. One may also put to one side those instances where a judge may take judicial notice of a particular fact, even if it is not put into evidence, which is of such notoriety that it could not be the subject of serious dispute. So also, a judge may have recourse to learned works for the purpose of refreshing his or her memory. But even in such cases where evidence may not required to prove a fact, the requirements of natural justice will ordinarily have to be observed. Judges should not so inform themselves on any contentious matter, and then act upon it, without first giving the parties an opportunity to controvert or comment upon it. (Citations omitted; my emphasis)
87His Honour should not have taken judicial notice of the "normal street purity" of methylamphetamine without notice to the parties especially where his Honour appreciated that this consideration was relevant to the objective seriousness of the offending, and he intended to use it in assessing that matter. I will return to the question of whether any practical injustice flowed from this.
88The legal position I have described drawn from the common law is materially the same as that established by the provisions of the Evidence Act 1995, s 144 which is in the following terms:
144 Matters of common knowledge
(1) Proof is not required about knowledge that is not reasonably open to question and is:
(a) common knowledge in the locality in which the proceeding is being held or generally, or
(b) capable of verification by reference to a document the authority of which cannot reasonably be questioned.
(2) The judge may acquire knowledge of that kind in any way the judge thinks fit.
(3) The court (including, if there is a jury, the jury) is to take knowledge of that kind into account.
(4) The judge is to give a party such opportunity to make submissions, and to refer to relevant information, relating to the acquiring or taking into account of knowledge of that kind as is necessary to ensure that the party is not unfairly prejudiced.
Importantly, s 144(4) requires the judge to give the parties a fair opportunity to make submissions.
89I am conscious that by dint of s 4, the Evidence Act applies to sentencing proceedings only to the extent that the Court directs that the Act apply. No party asked for such a direction in the present case, and none was made. In R v Bourchas [2002] NSWCCA 373; 133 A Crim R 413, Giles JA noticed it was not customary for a direction that the Act applied to be made. After a detailed and insightful review of the case law and the writings of commentators, his Honour, with the agreement of Levine and Sperling JJ, expressed the following conclusion at [61]:
What I have said is not to deny that the sentencing judge should be fully informed, or that desirable practices as they have developed should not continue. In practice sentencing proceedings are conducted with a degree of informality. Unnecessary insistence on the strict rules of evidence is in no-one's interests in sentencing proceedings, and the customary co-operation between the Crown and the offender and making of admissions by the offender should so far as possible be insisted upon. But if there is good reason for objection to evidence in sentencing proceedings the objection when taken must be resolved and, apart from statute, must be resolved by application of the rules of evidence. In the absence of a direction pursuant to s4 of the Evidence Act, the law of evidence unaffected by that Act applies.
90Accordingly, in the absence of a direction, the law of evidence unaffected by the Act applied in this case. And that common law, in my judgment, required the parties to be given a fair opportunity to address or comment upon whether 3-5% represented normal street purity when the applicant offended. The denial of that opportunity amounted to practical injustice: Re Minister for Immigration; ex parte Lam [2003] HCA 6; 214 CLR 1 at 13-14 [37] by Gleeson CJ. The reports tendered in this Court suggest that the street purity of methamphetamine in Australia is higher now than when Parkinson was decided, if not Shaaban. At page 109 (7.4.2) of the 2010 paper, of the various forms of methylamphetamine, "speed" is said to have a median purity of approximately 10 percent; "base", 21 percent; and "ice", a median purity of 19 percent. In the 2012 report (p72 [5.2.3]) the median purity of all methylamphetamine seizures analysed by police was said to be 9%, from a range of all seizures of 0.5-84.5%.
91I would reject Ground 3, but uphold Ground 4. Having said that, I do not regard his Honour's finding as to purity as having had much effect upon his finding as to the objective seriousness of the offending. It was a factor that he said he was taking into account. However, it is implicit in his Honour's finding that the offender was a retailer that the drugs were not to "be cut down by other some substance" to produce a greater quantity for the purpose of on-selling.
92In expressing these conclusions, I have not overlooked the significance of the decision of this Court in R v Attallah [2005] NSWCCA 277 where (at [221]) James J (Buddin and Rothman JJ agreeing) said:
I do not consider that it was open to her Honour to find that the heroin or cocaine supplied was "of a high degree of purity". There was no evidence which would have permitted a determination of whether these degrees of purity should be regarded as high degrees of purity. Her Honour did not refer to any evidence at all about the degree of purity of the heroin the appellants had supplied.
This statement should not be taken as requiring direct evidence in any case in which purity of a drug is in issue. The question of the "high degree of purity" in Attallah was raised in the context of s 61(2)(c) Crimes (Sentencing Procedure) Act 1999 (NSW). That section imposes a mandatory life sentence for certain serious drug offences. In those circumstances where there is a requirement for a court to be satisfied as to the purity of a drug before imposing the most severe punishment known to our criminal law it follows that evidence is required to discharge the standard of proof beyond reasonable doubt. An offender should not be sentenced to life imprisonment on a finding "of a high degree of purity" without evidence.
93Obviously, in every case, a sentencing Judge may not take into account as an aggravating factor any matter unless satisfied of it beyond reasonable doubt and in a case of appropriate notoriety, judicial notice will suffice. What was required in Attallah was not proof of "normal street purity" but that the actual drugs in question were of a high degree of purity. Judicial notice could not supply that fact.