Resolution of the appeal
55The principles of statutory interpretation which must be applied when dealing with a fundamental right, such as the common law right to a unanimous verdict, were enunciated in Coco v The Queen (1994) 179 CLR 427 where the High Court relevantly stated (at 437-438):
"The insistence on express authorisation of an abrogation or curtailment of a fundamental right, freedom or immunity must be understood as a requirement for some manifestation or indication that the legislature has not only directed its attention to the question of the abrogation or curtailment of such basic rights, freedoms or immunities but has also determined upon abrogation or curtailment of them. The court should not impute to the legislature an intention to interfere with fundamental rights. Such an intention must be clearly manifested by unmistakeable and unambiguous language. General words will rarely be sufficient for that purpose if they do not specifically deal with the question because, in the context in which they appear, they will often be ambiguous on the aspect of interference with fundamental rights [32].
...
The need for a clear expression of an unmistakable and unambiguous intention does not exclude the possibility that the presumption against statutory interference with fundamental rights may be displaced by implication. Sometimes it is said that a presumption about legislative intention can be displaced only by necessary implication but that statement does little more than emphasise that the test is a very stringent one [36]. As we remarked earlier, in some circumstances the presumption may be displaced by an implication if it is necessary to prevent the statutory provisions from becoming inoperative or meaningless. However, it would be very rare for general words in a statute to be rendered inoperative or meaningless if no implication of interference with fundamental rights were made, as general words will almost always be able to be given some operation, even if that operation is limited in scope."
56The Criminal Trial Courts Bench Book (the Bench Book ) is prepared by the Judicial Commission of NSW to assist Supreme Court and District Court judges in the conduct of trials. The Bench Book was amended in 2006 as a result of the introduction of majority verdicts in criminal trials in NSW. The Bench Book relevantly contains (and contained at the time of the applicant's trial in 2008) at [8-070] a suggested perseverance direction (set out in part at [40]) to be given to the jury where the preconditions of s 55F(2) of the Jury Act have not yet been satisfied.
57The suggested "perseverance direction" in the Bench Book is based on the model direction discussed in the joint judgment of Mason CJ, Brennan, Dawson and McHugh JJ in Black v The Queen (1993) 179 CLR 44 at 51-52; 69 A Crim R 248 at 253; [1993] HCA 71 at [15] (the Black direction). With the exception of the reference to majority verdicts in paragraph 2 and the omission of the words "Judges are usually reluctant to discharge a jury because" at the start of paragraph 3, the terms of the Bench Book direction are identical to those of the Black direction.
58In RJS v The Queen (2007) 173 A Crim R 100; [2007] NSWCCA 241 this Court decided that a trial judge had failed to properly consider the provisions of s 55F of the Jury Act before taking a majority verdict. The trial judge accepted a majority verdict after eight hours had elapsed but without giving consideration to the "nature and complexity of the criminal proceedings" as required by subs (2)(a) and failed to examine one or more jurors on oath before deciding that it was "unlikely that the jurors will reach a unanimous verdict after further deliberation" as required by subs (2)(b).
59Of present significance is the fact that when the trial judge gave a Black direction he also told the jury of the time at which a majority verdict would be open to them. The trial judge gave a Black direction and then said the following (at [11]):
"... If, in fact, after further discussion you are unable to reach a unanimous verdict, then there is now in New South Wales as of very recently a provision whereby if eleven of you agree then a verdict can be returned. I have not mentioned that to you before because the law provides that that can only happen if the jury have been deliberating for eight hours. We have kept a note of the times and certainly by 2.30 today you will have been deliberating for eight hours. If 2.30 came and you were unable to reach a unanimous decision but eleven of you agreed, then you would be entitled to return a verdict at that time. So with those further matters in mind, members of the jury, can I ask you to retire and further consider your verdict."
60On the appeal to this Court, Spigelman CJ (Simpson and Harrison JJ concurring) said in relation to this issue:
"[20] The second ground of appeal with respect to his Honour's directions to the jury focused on the timing that the directions were given.
[21] His Honour gave the jury a direction in accordance with Black v The Queen (1993) 179 CLR 44; 69 A Crim R 248 urging them to continue to attempt to reach a unanimous verdict. However, the effect of that direction was, the Appellant submitted, undermined by the fact that at the same time his Honour directed the jury that in 15 minutes they could in fact resolve upon guilt with a majority of 11. This invitation to just wait, the Appellant submitted, was compounded by his Honour's statement to the jury that they 'need not worry' because the Court 'will not be keeping you here beyond a day'.
[22] In my opinion, his Honour did undermine the effect of the Black direction. No further direction should have been given at this time.
...
[25] In the present case, the course of events should have been to give the Black direction and then, in the absence of the jury, to take submissions from counsel as to when, in the particular circumstances of this case, a reasonable time could be said to have expired. It is inappropriate to determine that there should be a general practice about whether the trial judge, having determined what was such a reasonable time should, upon the elapse of that time, intervene with the jury's deliberations. What should occur will vary from case to case."
61In Ngati v R [2008] NSWCCA 3 the trial judge gave a Black direction which was modified to include the following reference to majority verdicts (a "modified Black direction"):
"[22] ...The circumstances in which I may take a majority verdict have not yet arisen, and you should still consider that your verdict of guilty or not guilty must be unanimous. Now, when I refer to a majority verdict, the law now provides that in certain circumstances a verdict or guilty or not guilty agreed upon by eleven out of twelve jurors may be accepted. Those circumstances, as I have said, have not yet arisen, so you must confine yourself to attempting to reach a unanimous verdict either way of guilty or not guilty...."
62This Court held that a direction in these terms was not inappropriate in that case. Barr J (Hidden and Tobias JJ concurring) said:
"[27] The principal contention [of the appellant] ... was that there was a miscarriage of justice because the jury were confused by the reference to a verdict by majority. Counsel referred to the judgment of this Court in R v RJS [2007] NSWCCA 241, a case in which, as in the present case, the jury delivered a verdict after they had reported having difficulty agreeing and after the consequent Black direction. The problem in RJS was that although the jury were told that they should continue to try to reach a unanimous verdict, they were at the same time told, in effect, that if they were unable to do so within quite a short time (effectively, I think, fifteen minutes) the Court would accept a verdict by majority. So the information which followed immediately upon the direction to return a unanimous verdict completely undermined it.
[28] Counsel also referred to the Victorian case of R v VST [2003] VSCA 35, referred to in para [23] of RJS , in which the Victorian Court of Appeal considered it wiser for a judge sending a jury back to continue to try to reach a unanimous verdict to avoid telling them that the time at which a majority verdict might be accepted was imminent.
[29] There was no such flavour in anything his Honour said to the jury in the present appeal. The jury were told a second time that the circumstances in which a majority verdict might be accepted had not yet arisen. His Honour gave no indication when, or, I think, even whether, those circumstances would arise. In my view nothing his Honour said was calculated to water down the plain instruction that a unanimous verdict was necessary. And after that, more than two hours elapsed before the jury delivered its verdict.
...
[31] In my opinion this ground of appeal has not been made good. I would dismiss the appeal against conviction."
63In Hanna v Regina (2008) 191 A Crim R 302; [2008] NSWCCA 173 the trial judge gave a "modified Black direction" which included the following reference to majority verdicts (at [7]):
"But I should say to you that you having now been deliberating for eight hours, the law provides that I can accept a majority verdict which would require eleven of you of the twelve to agree if you cannot reach unanimous verdict. But I emphasise to you that it is preferable that you continue to deliberate and try and reach a unanimous verdict. A unanimous verdict is preferable to a majority verdict."
64The appeal against conviction was allowed. The Court considering that the precondition set out in s 55F(2)(a) of the Jury Act to the return of a majority verdict by the jury was not satisfied because the trial judge had given no consideration to whether or not the period of time for which the jury had been deliberating was reasonable "having regard to the nature and complexity of the criminal proceedings": see James J at [10], Hoeben J at [24] and Hall J at [72].
65The applicant in that case also submitted that the effect of the Black direction given by the trial judge was undermined by the reference to the availability of majority verdicts extracted at [63] above. This Court found it unnecessary to determine this issue as the appeal had been allowed for the reason identified above. However, each member of this Court made obiter remarks of relevance.
66James J said:
"[23] I have concluded that, because it is unnecessary to make a decision on whether the further submission by counsel for the appellant should be accepted, in order to determine the appeal or to determine that both grounds of the appeal should be upheld and because the directions given by her Honour followed suggested directions in the Bench Book and because argument on this aspect of the appeal was fairly brief, I should not make a final determination on whether the submission should be accepted. It does appear to me that in the present case it might have been a preferable course for the trial judge to have given a Black direction without referring to the possibility of a majority verdict, to have allowed the jury some further time in which to endeavour to reach a unanimous verdict and only then, if the jury was still unable to reach a unanimous verdict, to have put into effect s 55F of the Jury Act ."
67Hoeben J said:
"[25] For the reasons set out by Hall J and discussed by James J, I am inclined to the view that the effect of the Black direction was undermined by the fact that at the same time as giving the Black direction the trial judge directed the jury that they could return a verdict of guilty with a majority of eleven.
[26] It is unnecessary to reach a final decision on that issue since the failure by the trial judge to comply with s 55F(2) of the Jury Act is sufficient to dispose of the appeal. Accordingly, I leave open for a future occasion whether her Honour's directions as a whole undermined the Black direction so as to entitle the appellant t succeed on the appeal."
68Hall J said:
"[73] Although the circumstances in which the jury were also given a Black direction was somewhat different from the circumstances that arose in RJS , there is a question as to whether the trial judge ought to have first given a Black direction and not, at the same time, to have made reference to the fact or the circumstances in which a majority verdict may be returned by the jury.
[74] Whilst it is, in my opinion, arguable that, by giving a Black direction followed immediately by a reference to the possibility of a majority verdict in respect of the two counts in question the force of the Black direction was thereby undermined, it is not necessary for that question to be finally resolved for the purposes of the present appeal."
69It is useful to consider the position in the other Australian States. Victoria permits majority verdicts in certain circumstances under s 46 of the Juries Act 2000 (Vic). Section 46 came into operation on 1 August 2001. Prior to that date, the relevant provision concerning majority verdicts was s 47 of the Juries Act 1967 (Vic). That section was inserted by s 7 of the Juries (Amendment) Act 1993 (Vic) on 1 February 1994. The case law prior to 1 August 2001 accordingly refers to s 47 of the Juries Act 1967 (Vic) rather than s 46 of the Juries Act 2000 (Vic).
70In Muto (referred to at [25] above) the trial judge directed the jury as follows at 13-14 of the charge (at 71):
"In respect of your verdict, until recently the law in this state was that in all criminal trials the verdict of the jury, be it guilty or not guilty, had to be unanimous, the verdict of all 12 of you. Now with some exceptions by statute the law has been slightly changed by Parliament, and you may have read about this or seen something of it on television. The law now says that in this trial if all jurors after at least 6 hours deliberation are unable to agree upon a verdict, whatever that verdict may be, a majority verdict of, in this instance 11 of the 12, may be taken as the verdict of you all. The law further says that the court, that is me in this situation, must refuse to take a majority verdict if it appears to the court that the jury has not had a period of time for deliberation that the court thinks reasonable having regard to the nature and complexity of he trial. Here of course, we have had quite a long trial. Naturally you should endeavour to reach a unanimous verdict. It does not matter how you get there. Different arguments of counsel may appeal to some of you, different portions of the evidence may appeal to others. You can arrive at the same verdict, be it guilty or not guilty, by different routes. Ultimately of course, the ideal situation is that in each instance your verdict be a unanimous verdict."
71The Victorian Court of Appeal (Winneke P, Callaway JA and Southwell AJA) upheld an appeal against the direction and said at 344:
"In our opinion the direction given in the present case involved a significant risk that the jurors would think that, if they were unable to arrive at a unanimous verdict, the view of the majority would ultimately prevail. It is unlikely that they understood that the judge retained a residual discretion. If that is so, they would have understood his Honour's direction in the sense that we have just indicated. That is not the law, quite apart from the deflection of the jury from their constitutional task. The common law is that a majority view never prevails; the effect of s. 47 is that a majority view may, not will, prevail in certain circumstances that usually do not arise. ... The Black direction that was then given did not rectify the position because, in its context, it was an exhortation to reach a majority verdict. Unanimity was never held out to the jury as anything more than an ideal. It is more than an ideal. Its pursuit, until the judge says otherwise, is the jury's duty."
72The Court discussed model directions that it considered should be followed in future. The Court said that, in the context of explaining the unanimous verdict that is required, the trial judge should include a statement along the following lines:
"In 1994 Parliament introduced a provision which, in certain circumstances, gives me a discretion to take a majority verdict. Those circumstances have not yet arisen and may not arise at all. Until they do, you should consider that your verdict of guilty or not guilty must be unanimous."
73This form of direction has since been approved in obiter remarks by Eames JA (Smith AJA agreeing) in R v Rajakaruna (2004) 146 A Crim R 238; [2004] VSCA 114 at [159]-[160] and in obiter remarks by Ashley JA (Buchanan and Vincent JJA agreeing) in R v Ahmet [2009] VSCA 86 at [62].
74A further relevant Victorian decision is R v VST [2003] VSCA 35. In a passage not reproduced in the report of the case at R v VST (2003) 6 VR 569, Phillips JA (Winneke P and Buchanan JA concurring) said at [38]:
'Where a jury returns pleading deadlock shortly before the expiry of the six hours referred to in s 46, then, even in a case where the judge considers that six hours is a reasonable time for deliberation, it would perhaps be wiser for the judge, instead of mentioning the possibility of taking a majority verdict once the six hours has expired, to send the jury back to their room to persevere in their deliberations, for the time being. In this case, that would have meant sending the jury back at, say, 4.30 pm to deliberate for a further period and then at, say, 5 pm, recalling them to the courtroom without any need for prior notice, to see if they had reached a unanimous verdict. If at that point the foreman said that they were still deadlocked although 11 were in agreement, it would be time enough for the judge to consider s 46(2) and (3). That should avoid any problem such as was agitated on this application.'
These remarks were referred to with approval by Spigelman CJ in RJS at [23].
75South Australia permits majority verdicts in certain circumstances - see Juries Act 1927 (SA), s 57. It is apparent from the remarks of Matheson J in Rusovan v The Queen (1994) 62 SASR 86 at 94 that in South Australia juries have with them, in the jury room, notes for their guidance which include an explanation as to the availability of majority verdicts.
76The South Australian Court of Criminal Appeal in R v K (1997) 68 SASR 405 considered a submission that nothing should be said to a jury during the course of a summing up concerning the availability of majority verdicts. That proposition was rejected by Doyle CJ (Lander and Bleby JJ concurring) at 413-414:
"...In my opinion it is impractical to conceal from the jury knowledge of what the law provides in this respect. It is quite likely that the jury in a given case will include people who have been called for jury service on a previous occasion, or who will know from other sources that the law provides for a majority verdict. As the month for which a jury is called for service wears on, it becomes increasingly likely that the jury will include a juror who has served on a jury which has already returned a majority verdict. Failure to say anything about the power to return a majority verdict in the course of a summing-up may lead to confusion in the jury room, as a result of jurors aware of the power raising the matter in the course of the jury deliberations."
Western Australia permits majority verdicts in certain circumstances - see Criminal Procedure Act 2004 (WA), s 114.
77The Western Australia Court of Criminal Appeal considered the issue of appropriate directions with respect to majority verdicts in R v Pearmine (1987) 37 A Crim R 424. Burt CJ stated at 425:
"...the jury should strive to reach a unanimous verdict and I can see no reason for telling them at the outset that 'should the time come when it is possible for me to accept a majority verdict I will give you a further direction'. To tell the jury that at that time may encourage the view that whenever there is revealed to be a majority for one verdict or another the jury can cease to achieve unanimity comfortable in the expectation that the time will come at which they will be told that that is good enough.
...
I think at least as a general rule it would be wiser not to tell the jury anything about a majority verdict when they retire for the first time. At that time a unanimous verdict is required by law and they should be so directed. In the fullness of time, which will be at some point of time after the jury has remained in deliberation for at least three hours and has not arrived at a unanimous verdict, the decision of not less than ten of the jurors shall be taken as the verdict and in my opinion it is a better practice to tell the jury that that can be done when the time arrives at which it can be done..."
78Kennedy J said at 430:
"Prior to the introduction of s 41 in 1961, only a unanimous verdict could be accepted. I do not consider that, thereafter, an obligation rested upon the trial judge to inform the jury, when they retired, that, after three hours, he would accept a majority verdict in accordance with the section, for to do so might undermine their attempts to reach a unanimous verdict if they can properly do so. I would not, however, wish to be taken to be suggesting that to give such a direction would necessarily lead to a miscarriage of justice. In my opinion, juries should be encouraged to reach a unanimous verdict if they are able to do so, because that is the entitlement of an accused before s 41 operates. That is more likely to be achieved by refraining from telling them at some time in the future, if they have not reached a unanimous verdict, a verdict of not less than ten may be accepted."
79Wallace J concurred with both Burt CJ and Kennedy J at 425.
80The Northern Territory permits majority verdicts in certain circumstances - see Criminal Code Act (NT), s 368.
81The Northern Territory Court of Criminal Appeal considered the issue of appropriate directions in CEV v R [200] NTCCA 10. The Court (Mildren, Riley and Southwood JJ) held at [16]-[17]:
"[16] The jury's question about what was the procedure to be followed if the jury were deadlocked was not novel. It is an important principle of the administration of criminal justice that a jury strive to reach unanimity in its verdict. An impression should not be created before the time after which a majority verdict must be accepted, that if jurors are unable to arrive at a unanimous verdict, the view of the majority will ultimately prevail. It is for this reason that this Court has said that trial judges should not tell the jury anything about majority verdicts when they first retire: Tipiloura v R (1992) NTLR 216 at 218; Fittock v R (2001) 11 NTLR 52 at 59. The consensus of all jurors which flows from the requirement of unanimity promotes deliberation and provides some assurance that the opinions of each of the jurors will be heard and discussed. It reduces the danger of hasty and unjust verdicts: Cheatle and Ors v R (1993) 177 CLR 541 at 552-553.
[17] However, if a jury asks what is the procedure for majority verdicts they should be given a direction along the following lines:
'Parliament has introduced a provision which in certain circumstances allows a court to take a majority verdict. Those circumstances have not yet arisen and, until they do, you should consider your verdict of guilty must be unanimous."