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[1998] VSCA 34
Court of Appeal (Vic)
1998-09-04
WINNEKE, P., PHILLIPS and KENNY, JJ.A.
Original judgment source is linked above.
Criminal law - Sentencing - Application for fixing of non-parole period under Sentencing Act 1991 s.13(1) - Sentence imposed by County Court on appeal from Magistrates' Court - Appeal dismissed and sentences confirmed, including imprisonment for 12 months - No non-parole period fixed - No reasons given for sentence imposed - Whether a "failure to fix a non-parole period" sufficient to ground jurisdiction under s.13(1) - Desirability of reasons - Sentencing Act 1991 ss.11(2), 13(1).
"But when the decision constitutes what is in fact or in substance a final order, the case must be exceptional for a judge not to have a duty to state reasons."
In Ex parte Powter, re Powter (1945) 46 S.R.(N.S.W.) 1 at 4, Jordan, C.J. said:-
"There is another matter which cannot be allowed to pass without notice. As already mentioned, the magistrate has neglected to give any reasons for his order. This was wrong. It has been pointed out time and again that orders by magistrates made under legislation such as this 'are of the gravest moment, and involve life long consequences. They are not like the ordinary kind of orders in other petty cases that come before them every day. ... Magistrates should realise, even more than they seem to do, that this class of business is not mere ordinary trivia work, and they should deal with these cases with a due sense of the responsibility which administration of the Summary Jurisdiction Act and the far reaching consequences of the orders that they make thereunder entail': Barker v. Barker (1906) 95 L.T. 549."
Jordan, C.J. was speaking here of the duty of magistrates when making maintenance orders; what his Honour said can only apply a fortiori to a County Court judge hearing an appeal in a criminal matter. It is regrettable that this Court should have to say so.
"(1) The failure of the sentencing court to fix a non-parole period in accordance with section 11 does not invalidate the sentence but- (a) the [Court of Appeal] in respect of a sentence imposed by the Supreme Court or the County Court; or (b) the County Court in respect of a sentence imposed by the Magistrates' Court - may, on the application of the offender or of the Secretary to the Department of Justice fix a non-parole period in accordance with that section in any manner in which the sentencing court might have done so."
The first question for us is whether in this instance there was a failure on the part of the County Court Judge "to fix a non-parole period in accordance with section 11". Obviously no non-parole period was fixed, for no mention was made of it at all. But is that a relevant "failure" within the meaning of s.13(1)?
"(1) If a court sentences an offender to be imprisoned in respect of an offence for - (a) the term of his or her natural life; or (b) a term of 2 years or more - the court must, as part of the sentence, fix a period during which the offender is not eligible to be released on parole unless it considers that the nature of the offence or the past history of the offender make the fixing of such a period inappropriate. (2) If a court sentences an offender to be imprisoned in respect of an offence for a term of less than 2 years but not less than one year, the court may, as part of the sentence, fix a period during which the offender is not eligible to be released on parole. (3) A non-parole period fixed under sub-section (1) or (2) must be at least 6 months less than the term of the sentence. (4) If a court sentences an offender to be imprisoned in respect of more than one offence, any period fixed under sub-section (1) or (2) must be in respect of the aggregate period of imprisonment that the offender will be liable to serve under all the sentences then imposed."
Section 11 thus speaks three times in mandatory terms: in subs.(1) whereby the court "must" fix a non-parole period unless it is of a certain view; in subs.(3) whereby the non-parole period "must" be at least 6 months less than the head term; and in subs.(4) whereby the non-parole period "must" relate to the aggregate period of imprisonment. In contrast, s.11(2) confers a discretion upon the sentencing court in a case like the present, 12 months' imprisonment having been ordered.
"As Batt, J.A. said in Sener at 5, it is desirable that the sentencing judge give reasons where no non-parole period is fixed; a view with which I agree, with respect. See also R. v. Krasnov & Shlakht (1995) 82 A.Crim.R. 92 at 99. But a sentencing judge is not obliged to give reasons for not fixing a non-parole period; Sener, at 5-6; R. v. Dung (1991) 55 A.Crim.R. 475, at 477; R. v. Yates, unreported, Court of Appeal, 17 February 1998, at 11-12. As Batt, J.A. said in Sener, at 5, it has been the practice of this Court to proceed on the presumption of regularity, that is on the assumption that consideration has been given to the question, even though there is no express mention of it in the judge's sentencing remarks, in the absence of an indication that the question was not in fact considered. Such an indication might appear in various ways. It may, for example, be apparent on the face of the judge's reasons that no consideration was given to whether a non-parole period should be fixed; or the course of argument may lead to the drawing of the necessary inference; or the sentence of imprisonment actually imposed may, in the circumstances of the case, be in important respects unusual, so that one would expect reasons to be given if no non-parole period was fixed (see Krasnov & Shlakht, at p.99)."
"Provided that the court shall not be required to fix a minimum term if the Court considers that the nature of the offence and [sic] the antecedents of the offender render the fixing of a minimum term inappropriate."
This proviso is plainly reflected in the concluding words of s.11(1) of the present Sentencing Act 1957 . The word "and" was changed to "or" in 1991.
"(1) Any term of imprisonment imposed (whether before or after the commencement of the Crimes (Sentences and Parole) Act 1959 ) by any court shall not be invalidated by reason only of the failure of the court to fix a minimum term as required by this Act or by the purported fixation by the court of a minimum term not in accordance with this Act."
In such cases, the Full Court or the County Court (as the case required) was authorised "on the application of the Director General of Penal Services" (later the Director General of Social Welfare) to "fix a minimum term in accordance with this Act" in any manner in which the sentencing court might have fixed such term.
"But in any event the language of s.537A is wide enough to cover all situations where there is a purported minimum sentence 'not in accordance with the Act', whether that arises from the fact that the Act does not authorize any minimum term at all in the circumstances, or only authorizes some particular minimum term."
Section 537A became s.193 of the Social Welfare Act 1970 (an Act first known as the Community Welfare Services Act 1970 and then as the Community Services Act 1970 ) and then s.18 of the Penalties and Sentences Act 1985 , before becoming s.13(1) in the Sentencing Act 1991 . I agree with Callaway, J.A. in Gibb at 577-8 that there is no reason to suppose that s.13(1) of the 1991 Act was intended to apply in circumstances discernibly different from those in which s.537A came into operation, and, as the Full Court said in Cusmano at 586, s.537A was "obviously designed to meet irregular applications of s.534" (which is now s.11). The expression "the failure of the sentencing court to fix a non-parole period in accordance with s.11" extends therefore, not only to a purported fixation which is not in accordance with s.11 (in the sense of authorised by s.11), but also to a failure of the Court to fix a minimum term "in accordance with s.11" (again in the sense of authorised by s.11).
founded and we must now decide for ourselves what non-parole period if any should be fixed, exercising that discretion which was available to the sentencing court but which was ignored by it. The task is described by the President in R. v. Mulvale (unreported, Court of Appeal, 20 February 1996) at p.11 where his Honour said that the fixing of a non-parole period
"... requires discrete consideration of those factors which exist in the material before the court which bear upon the question of when the prisoner should be eligible for mitigation of confinement and, in turn, rehabilitated under conditional supervision."
This was reiterated in R. v. Bernath [1997] 1 V.R. 271 at 278-9 per Callaway, J.A. and Sener at p.5 per Batt, J.A.
R
Arnold [1998] VSCA 34