[2024] WASC 282
General information, not legal advice.
Supreme Court of WA
2024-08-07
Musikanth J
Original judgment source is linked above.
(1) A certificate purportedly issued pursuant to s 110(1) of the Road Traffic (Administration) Act 2008 (WA) (Administration Act) by the Release of Information Coordinator.
(2) An instrument of delegation purportedly issued pursuant to s 8 of the Administration Act, relevantly delegating the CEO's power to issue certificate evidence under s 110 to the Coordinator.
(1) There was 'no evidence' that the facts specified in the evidentiary certificate were facts that appeared in, or were derived from, the vehicle licence register maintained under s 14 of the Vehicles Act.
(2) The respondent therefore had no case to answer.
(1) The licensed owner of a vehicle, within seven days after ceasing to be its owner, gives written notice to the CEO of the name and address of the new owner.[1]
(2) The CEO, having received such a notice and being satisfied that the licence may be transferred under s 5(3) and that no application has been made under s 5(1), issues to the new owner a notice requiring that an application be made under s 5 the transfer of the licence.[2]
(3) The new owner, after receiving such a notice, fails to make an application for the transfer of the licence for the vehicle within 28 days after the notice is issued (or within any longer period that the CEO allows) and no exception applies.[3]
Certificate Evidence
I, [REDACTED], Release of Information Coordinator, being a person delegated by the Chief Executive Officer (CEO) Department of Transport to issue certificate evidence under Section 110 Road Traffic (Administration) Act 2008, certify that the vehicle register maintained in accordance with Section 14 of the Road Traffic (Vehicles) Act 2012 has recorded that;
This certificate evidence is issued pursuant to Section 110(1) of the Road Traffic (Administration) Act 2008.
A fact specified in this certificate appears or is derived from the vehicle register or another record maintained by the CEO.
[Signed]
OFFICER DELEGATED BY THE CHIEF EXECUTIVE OFFICER
Section 110 Road Traffic (Administration) Act 2008
18 September 2023
(1) For the purposes of a prosecution for an offence under a road law ... the CEO or a person authorised by the CEO may issue a certificate stating that a fact specified in the certificate appears in or is derived from the driver's licence register or another record kept by the CEO or the Commissioner for Main Roads under a road law.
(2) A certificate purporting to be issued under subsection (1) ... is evidence of any fact stated in the certificate.
(emphasis added)
Was there 'no evidence' that facts in evidentiary certificate appeared in or were derived from vehicle licence register? (Ground 2)
The opening preamble to the certificate specifies that the delegate certifies the register maintained in accordance with section 14 of the [Vehicles] Act has recorded the matter specified in the seven paragraphs that follow. I accept on the material before me that the author of the certificate is delegated to issue the certificate. However, insofar as she certified the matters in the following seven paragraphs, are matters recorded in the vehicle licence register, I note that there is no evidence before me of what the vehicle licence register actually records.[6] (emphasis added)
(1) Found that the author of the evidentiary certificate was delegated to issue the certificate.[7]
(2) Determined, with respect to paragraph 1 of the certificate, that:
There is no evidence before me that the fact a notification of a change of ownership form was received by the department is a matter that is contained within the vehicle licence register. As a matter of logical inference, it is only upon the actual transfer of the vehicle licence that a register would be updated to reflect the change in holder of the vehicle licence. Until such time as an application to transfer has been submitted, accepted and processed, as a matter of logical inference, there would be no change made to the vehicle licence register or the particulars of such a licence. (emphasis added)
...
[Section 110(1) of the Administration Act] ... is confined to matters that appear in or are derived from the vehicle licence register, not other business records maintained by the department or the CEO. In my view, the matters contained in this paragraph are not matters that can be validly the subject of evidence by way of a section 110 certificate. There needs to be an explanation of the processes followed. That can only be given by a witness who could then produce the relevant forms from the records of the department.
...
... this paragraph of the certificate is invalid and inadmissible and cannot be relied upon by the prosecution to prove its case.[8]
(3) Arrived at substantially the same conclusions with respect to paragraphs 3, 4, 6, and 7 of the certificate based on a similar process of reasoning.[9]
(4) Accepted, as evidence, only the contents of paragraphs 2 and 4 of the evidentiary certificate, on the basis that the facts stated in those paragraphs 'would' be contained in the vehicle licence register.[10]
(1) Section 110(1) of the Administration Act permits production of a certificate 'stating that a fact specified in the certificate appears in or is derived from the drivers licence register or another record kept by the CEO or the Commissioner ... under a road law'.
(2) The meaning of 'records', for the purposes of the Administration Act, is broad and defined in s 4 to mean 'any documents, documentation or records whether in paper, electronic or other form'.
(3) However, for the purposes of s 110(1) of the Administration Act, 'records' refers only to those records kept under a road law and does not extend to any other 'business record' kept by the CEO or the Commissioner of Main Roads (Commissioner).
(4) The purpose of the subsections in s 110 is to facilitate the tendering of evidence at a criminal trial as to matters contained within registers and other records kept by the CEO under a road law, and it is against this purpose that the confinement of the words 'records' to 'records kept under a road law' is to be understood.
(5) Section 109 of the Administration Act fortifies a view that s 110(1) is limited in its operation in that:
(a) an averment in a prosecution notice as to any of the matters listed in s 109(1) is taken to be proved in the absence of proof to the contrary;
(b) the broader matters of fact specified in s 109(1):
(i) 'would be' derived from various records maintained by government agencies, including the Department of Transport (Department);
(ii) would generally be uncontroversial or not subject to any significant challenge; and
(iii) 'are subject to a rebuttable presumption, unlike the evidentiary certificates in s 110 which are taken as proven'. (emphasis added)
(6) The obligation which arises under s 14 of the Vehicles Act is (only) an obligation to maintain a record of vehicle licences issued and 'the particulars' of those licences.
(7) In meeting this obligation, 'other records' relating to vehicle licences would also be maintained including correspondence relating to vehicles and notices issued in relation to vehicle licences.
(8) Such other records 'would' also include forms such as the form that was sent to notify of the change in ownership.[12]
(9) Whilst such 'other records' may well be 'business records' for the purposes of the Evidence Act 1906 (WA), they are not:
(a) part of the vehicle licence register for the purposes of s 14 of the Vehicles Act; and
(b) records to which s 110(1) of the Administration Act applies.
(10) Unlike the circumstances in Barrett v City of Cockburn,[13] here the prosecution sought to use the evidentiary certificate to put facts before the court which were 'not immediately apparent' to be matters appearing in (or derived from) the vehicle licence register, and to do so without calling a witness.
(1) Her Honour's approach, if correct, would effectively require a prosecutor seeking to rely on such a certificate to produce additional evidence that the facts specified in that certificate had, in fact, appeared in the driver's licence register or another record kept by the CEO or the Commissioner under a road law.
(2) Such an approach would be inconsistent with a plain reading of s 110 and the purpose of the provision.
(3) The evident purpose of the provision is to facilitate the proof of facts relevant to an offence through tendering a certificate at trial; in other words, to provide evidence of the facts contained in the certificate without calling a witness.
(4) It would be contrary to this purpose if the prosecution were then required to call a witness to verify the accuracy of the certificate's contents.
(5) The relevant question was whether the evidentiary certificate complied with the requirements of s 110(1) and was therefore admissible.[14]
(1) Was issued by the CEO or a person authorised by the CEO under s 110(1).
(2) Stated that the facts specified in the certificate appeared in (or were derived from) a record kept by the CEO or the Commissioner under a road law.
(1) Without a witness to cross-examine, a certificate of evidence was merely an 'averment of fact' and inadmissible hearsay.
(2) Certificates of evidence 'support evidence in chief'. They cannot be relied upon 'solely' as evidence to convict an accused who challenges proceedings based on an infringement notice.
(1) s 109(1) and s 109(3) speak, respectively, of matters being 'taken to be proved in the absence of proof to the contrary' and of proof not being required '[i]n the absence of evidence to the contrary';
(2) s 109(2) speaks of a presumption which is 'rebuttable by evidence to the contrary';
(3) s 117A(1)(a) and s 117B(1)(a) speak of evidence needing to be accepted 'unless there is evidence to the contrary';
(4) s 117A(7) speak of matters being presumed 'in the absence of evidence to the contrary';
(5) s 111(1), s 111(3), s 112(2), s 115, s 117, s 117A(1)(b), s 117A(3), s 117B, s 117G(1)(b), s 117G(5) and s 117H speak of evidence being 'admissible' and 'prima facie evidence', or simply as 'prima facie evidence', of matters; and
(6) s 110(2), s 110(4) and s 110(5) simply speak of facts or matters stated in a certificate being 'evidence of' those facts or matters.[21]
Did the respondent have a case to answer? (Ground 1)
(1) all evidence of primary fact, considered at its strongest from the point of view of the prosecution case, is accurate; and
(2) all inferences most favourable to the prosecution which are reasonably open are drawn, the evidence is capable of producing, in the mind of a reasonable person, satisfaction beyond a reasonable doubt of the guilt of the accused.[25]
(1) Her Honour had admissible evidence before her in the form of the evidentiary certificate.
(2) The certificate was capable of establishing the elements of the offence beyond reasonable doubt and the respondent therefore had a case to answer.
(1) Without a witness to cross-examine, the prosecution could not prove the matters recorded in the evidentiary certificate beyond reasonable doubt as to do so would be to permit inadmissible hearsay.
(2) The prosecution could not prove that the respondent failed to apply for transfer of a vehicle licence within 28 days after being issued with a notice under s 10(3)(b) of the Vehicles Act.
(a) Was issued with a notice under s 10(3)(b) requiring that an application for transfer of a licence for a vehicle be made under s 5.
(b) Did not make such an application within 28 days after the notice was issued.
No substantial miscarriage of justice in any event?
(1) Leave to appeal be granted with respect to both Grounds 1 and 2.
(2) The appeal be upheld.
(3) The decision of the learned trial magistrate, dated 15 December 2023, to acquit the respondent, be set aside.
(4) The matter be remitted to the Magistrates Court to be heard and determined before a different magistrate according to law.
I certify that the preceding paragraph(s) comprise the reasons for decision of the Supreme Court of Western Australia.
CITATION : PORTER -v- KELLY [2024] WASC 282 (S)
Jurisdiction : MAGISTRATES COURT OF WESTERN AUSTRALIA
Costs - Single judge appeal - Where appellant successful - Relevant principles - Where question of law of public importance raised - Turns on own facts
(1) Whether the unsuccessful party commenced the proceedings.
(2) The result of the proceedings.
(3) Whether the unsuccessful party's submissions were accepted in part by the court.
(4) Whether the appeal involved a point of law of public importance, or a point of law that required reconciliation of conflicting authority.
it is open to a trier of fact to treat information recorded in a certificate purportedly issued pursuant to s 110(1) [of the Road Traffic (Administration) Act 2008 (WA)] as 'inadmissible', 'not admissible', or not 'validly [capable of being] adduced', so as to exclude it from consideration as admissible evidence for the purposes of the prosecution case. (emphasis in the original) (citations omitted)
I certify that the preceding paragraph(s) comprise the reasons for decision of the Supreme Court of Western Australia.
[3] Vehicles Act s 10(6). There is no suggestion any exception applies in this matter.
[4] Administration Act s 4 (definition of 'road law', para (d)).
[5] Defined, in s 4 of the Administration Act, as 'the chief executive officer of the department of the Public Service principally assisting in the administration of [the Administration Act]'.
[6] Transcript, Western Australia Police v Kelly, Magistrates Court of Western Australia, 15 December 2023 (ts 15 December 2023), 10 - 12.
[12] Evidentiary certificate, paragraph 1.
[14] Cf Tey v Carpenter [2011] WASC 263, [32]; and (generally) Tsolacis v McKinnon [2012] VSC 627; (2012) 38 VR 260.
[15] ts 15 December 2023, 12 (evidentiary certificate, paragraph 1), 15 (evidentiary certificate, paragraph 6).
[16] ts 15 December 2023, 13 (evidentiary certificate, paragraph 3).
[17] ts 15 December 2023, 15 (evidentiary certificate, paragraph 5), 17 (evidentiary certificate, paragraph 7).
[18] Tey v Carpenter [2011] WASC 263 (Mazza J, as his Honour then was) [32] (first two sentences) read with [6]. The relevant statutory antecedent of s 110(2) was s 98(1c) of the Road Traffic Act 1974 (WA), s 110 having been designed to replicate 'the substance' of former s 98: Road Traffic (Administration) Bill 2007, Explanatory Memorandum, p 31.
[19] See also Barrett v City of Cockburn [2023] WASC 384 [155] (Vandongen J).
[22] Compare for example Duties Act 2008 (WA) s 275(b) and Taxation Administration Act 1953 (Cth), s 350‑10(1) Schedule 1.
[24] Morrison v Kiwi Electrix Pty Ltd [1998] WASCA 203; (1998) 19 WAR 482, 489 (Malcolm CJ, Kennedy and Ipp JJ agreeing).
[25] Morrison v Kiwi Electrix Pty Ltd [1998] WASCA 203; (1998) 19 WAR 482, 491. See also State of Western Australia v Montani [2007] WASCA 259; (2007) 182 A Crim R 155, [37] - [38] (Martin CJ, Pullin and Miller JJA).
[26] Cf. State of Western Australia v Montani [2007] WASCA 259; (2007) 182 A Crim R 155, [35].
[30] The State of Western Australia v Burke [2011] WASCA 190; (2011) 42 WAR 124, [342] (Buss JA, Martin CJ and Mazza J agreeing).
[31] The State of Western Australia v Burke [2011] WASCA 190; (2011) 42 WAR 124 [342].
[32] The State of Western Australia v Burke [2011] WASCA 190; (2011) 42 WAR 124 [343].
[33] Morgan v Cramer [2019] WASC 68 [48] - [49] (Hall J).
[34] Morgan v Cramer [2019] WASC 68 [48] - [49] (Hall J).
[37] Porter v Kelly [2024] WASC 282.
[38] Wilson v McDonald [2009] WASCA 39 (S) (Wilson) [10] (Martin CJ, Beech AJA agreeing); The House of Relocators Pty Ltd v Ginbey [2014] WASCA 94 (S) (Ginbey) [10] (Pullin, Newnes, Mazza JJA).
[39] Appellant's Submissions on Costs [6].
[40] Porter v Kelly [2024] WASC 282.
(2011) 42 WAR 124
(2012) 38 VR 260
(1998) 19 WAR 482