Ground 3: special circumstances
32 Counsel for the applicant contended that the passage extracted above (at [14]) should be interpreted as a finding that, pursuant to s44(2) of the Sentencing Procedure Act, special circumstances existed justifying departure from the ratio between the non-parole period and the balance of term there specified. Counsel who appeared for the Crown accepted that, although that finding was not made explicitly, this was the correct interpretation of the passage.
33 Counsel for the applicant then argued that the finding had not been carried into effect.
34 A literal application of s44, together with the application of the standard non-parole period for this offence, and absent a finding of special circumstances, would result in the imposition of a non-parole period of five years with a balance of term of twenty months, giving a total sentence of six years and eight months. The sentence imposed by Judge English well exceeded that. If her Honour had intended to impose a head sentence of, say, six years and eight months, together with the standard non-parole period of five years, then she failed to give effect to her finding of special circumstances. The purpose of a finding of special circumstances remains to enable the court to reduce the non-parole period and extend the period of release on parole. S44(2) was not intended to permit a court to extend a total sentence beyond that properly applicable in respect of the offence.
35 It seems to me that her Honour has misunderstood the purpose and effect of a finding of special circumstances. That is, perhaps, best explicated in R v Moffitt (1990) 20 NSWLR 114, in which this court considered the proper interpretation and application of s5 of the Sentencing Act 1989 which established a sentencing regime essentially the same as that established by the current s44. All members of the court there proceeded on the basis that the capacity to depart from the sentencing ratio provided in the section was enacted for rehabilitative purposes, but not with an eye to increasing the head sentence; but rather to reduce the non-parole period. For example, Samuels JA said:
"If follows that 'special circumstances' must mean those circumstances which justify enlarging in the prisoner's favour the existing rehabilitative purpose of s5." (emphasis added)
36 Wood J (as the Chief Judge then was) drew a distinction between s5 and s20A of the (repealed) Probation and Parole (Serious Offences) Amendment Act 1987, the purpose of the latter of which was, his Honour said, "punitive, that is, to ensure a longer period was spent in custody for serious crime". He held that, where special circumstances existed dictating the imposition of a reduced minimum term followed by a longer additional term, so as to permit a longer period of eligibility for parole than the statutory norm, then that could be achieved by an exercise of the discretion under s5(2), the equivalent of the discretion under s44(2).
37 Badgery-Parker J, who wrote the principal judgment, took as his starting point that the function of the parole system is to facilitate the re-establishment of an offender as a responsible law-abiding member of the community, by affording him guidance and supervision after his release into the community and at the same time protecting the community from further offences. That being the case, his Honour considered that it would often be appropriate that he should be under supervision for a period longer than could be achieved by the specification of an additional term limited to one third of the minimum term. His Honour considered whether the section envisaged maintaining the minimum term, but extending the additional term. (That is what, I consider, happened in the present case.)
38 Badgery-Parker J rejected that interpretation, saying that it "may have an unintended punitive consequence". That was because release on parole is not automatic and an offender may be retained in prison beyond the expiration of the non-parole period, indeed even for the whole of the additional term with the result that an offender might be incarcerated for considerably longer than the sentencing judge contemplated or intended.
39 At least since the enactment of the Sentencing Act 1989, the statute governing sentencing has contained a provision, in one form or another, specifying that the non-parole period is, absent special circumstances, to be no less than three quarters of the total sentence. Each version of the provision has presumed the capacity of a sentencing judge, where he or she found special circumstances justifying a departure from that ratio, to specify a non-parole period that is less than that proportion of the total sentence. At least since the decision in Moffitt, it has been clear that this was intended to benefit the offender, by the reduction of the non-parole period and an enlargement of the period during which the offender would be eligible to release on parole. It has never been the case that the provision, whatever its form, permitted an extension of the head sentence which would otherwise be properly applicable.
40 Yet that, I think, is what has happened here. Error has accordingly been demonstrated.
41 In my opinion, the correct approach was (absent the plea of guilty) to begin with the standard non-parole period, to consider whether there were reasons for departing from that sentence; if the judge decided there were no such reasons, to begin with a standard non-parole period of five years, together with a balance of term of not more than one-third of the 60 months represented by the standard non-parole period; and then, pursuant to s44(2), to consider how the finding of special circumstances was to be implemented. This would result in an appropriate reduction in the five year non-parole period, not an extension of the balance of term.
42 In a sense, this is theoretical. The plea of guilty meant that, strictly, the standard non-parole period was inapplicable: see Way [68] - [70]. Nevertheless, the standard non-parole period operates as "a reference point, or benchmark, or sounding board, or guidepost": (Way, [122])
43 In my opinion, error has here also been demonstrated.