Has the section been impliedly repealed?
23 Before dealing with Mr Garling's submissions on this point, there is a preliminary matter to be resolved. Mr Howard SC, on behalf of the Crown, submitted that s 410(1)(a) of the Criminal Law Act had been impliedly repealed by the Evidence Act 2004, and accordingly no longer applied in Norfolk Island.
24 The particular provisions of the Evidence Act 2004 upon which Mr Howard relied were ss 85(2) and 138.
25 Section 85(2) of the Evidence Act 2004 provides:
"Evidence of the admission is not admissible unless the circumstances in which the admission was made were such as to make it unlikely that the truth of the admission was adversely affected."
26 Section 138 of the Evidence Act 2004 relevantly provides:
"(1) Evidence that was obtained:
(a) improperly or in contravention of a Norfolk Island law; or
(b) in consequence of an impropriety or of a contravention of a Norfolk Island law,
is not to be admitted unless the desirability of admitting the evidence outweighs the undesirability of admitting evidence that has been obtained in the way in which the evidence was obtained.
(2) Without limiting subsection (1), evidence of an admission that was made during or in consequence of questioning, and evidence obtained in consequence of the admission, is taken to have been obtained improperly if the person conducting the questioning:
…
(b) made a false statement in the course of the questioning even though he or she knew or ought reasonably to have known that the statement was false and that making the false statement was likely to cause the person who was being questioned to make an admission."
27 Mr Howard argued that s 410(1)(a) of the Criminal Law Act dealt with essentially the same subject matter as s 85(2) and s 138(1) and (2)(b) of the Evidence Act 2004. He submitted that these latter two sections manifested an intention to cover the field.
28 In support of that submission, Mr Howard drew attention to the observations of Stephen Odgers, in his text Uniform Evidence Law (7th ed, Lawbook Co, 2006). Mr Odgers argues (at 4) that Ch 3 of the Commonwealth and New South Wales Statutes, upon which the Evidence Act 2004 is modelled, constitutes "a code for the rules relating to the admissibility of evidence".
29 Mr Howard noted Odgers' assertion that the uniform Evidence Acts abrogate the common law rules relating to the admissibility of evidence. He noted also Odgers' suggestion that this conclusion flows primarily from the terms of s 56(1). In Telstra Corporation v Australis Media Holdings (No 2) (1997) 41 NSWLR 346, that section was described as "the pivotal provision": at 349 per McLelland CJ in Eq. The section provides as follows:
"Except as otherwise provided by this Act, evidence that is relevant in a proceeding is admissible in the proceeding."
30 Odgers argues that if evidence is "relevant" in accordance with the definition contained in s 55, and not excluded by any provision in the Act, the effect of s 56(1) is that it "is admissible in the proceeding". Any common law rule of admissibility which would render such evidence inadmissible would be inconsistent with the Act, and therefore of no legal effect.
31 Mr Howard also noted Odgers' argument that there is no reason why McLelland CJ in Eq's analysis in relation to client legal privilege should not apply with equal force to all common law rules of admissibility. Indeed, Odgers suggests that this very approach was adopted in Idoport Pty Ltd v National Australia Bank Ltd (2000) 50 NSWLR 640 at [28] per Einstein J, and also in EI Dupont de Nemours & Co v Imperial Chemical Industries Plc (2002) 54 IPR 304; [2002] FCA 230 at [46] per Branson J. He recognises, however, that there have been some statements by other judges to the effect that Ch 3 is not a code.
32 Mr Howard's reliance upon Odgers seems to me, with respect, to miss the point. The critical issue is not whether Ch 3 operates as a code in relation to the common law rules of admissibility. It is rather whether it operates as a code so as to effect an implied repeal of s 410 of the Criminal Law Act.
33 The answer is plain. The Evidence Act 2004 is not a code when it comes to the rules of admissibility contained in other statutory provisions. Section 8 of the Act provides, in terms, that it "does not affect the operation of the provisions of any other Act".
34 It is interesting to note that the Commonwealth statute, upon which the Evidence Act 2004 was specifically based, contains a more expansive version of s 8. The Commonwealth version of that section makes it clear that the Evidence Act 1995 (Cth), as a later statute, prevails over ss 68, 79, 80 and 80A of the Judiciary Act 1903 (Cth). However, it expressly allows those provisions to continue to operate, subject to any inconsistency with the later Act. In addition, evidentiary provisions in the Corporations Act 2001 (Cth), and various other designated statutes are expressly preserved. Section 9 of the Evidence Act 1995 (Cth)also preserves certain State and Territory laws dealing with the admissibility of evidence.
35 Despite the very clear terms in which s 8 of the Evidence Act 2004 is drafted, Mr Howard submitted that a reading of the explanatory memorandum to that Act showed that it was in fact intended to operate as a code. The Act was plainly intended to provide certainty in relation to all matters involving the admissibility of evidence in civil and criminal cases, and should be so construed.
36 If that was the intent of the Norfolk Island legislature in enacting the Evidence Act 2004, its object has not been achieved. One reason is that the Act was brought into existence without a thoroughgoing review by the legislature of a number of key provisions in other Norfolk Island statutes that deal specifically with the admissibility of evidence.
37 One example of the problems this has caused is the current status, in Norfolk Island, of the unsworn statement in a criminal trial. In tabling the explanatory memorandum, the then Chief Minister observed that one of the effects of the Bill would be to abolish such statements. However, he neglected to note that in Norfolk Island the right to make an unsworn statement was conferred specifically by s 405 of the Criminal Law Act. He therefore neglected to note that it might be necessary to repeal that section (as had been done in other jurisdictions that enacted the uniform evidence law), in order to ensure that the right so conferred was in fact abrogated. Section 25 of the Evidence Act 2004 speaks only of the abolition of any "rule of law or procedure or any practice" permitting the making of an unsworn statement. In my view, and in the light of s 8, that language is not sufficiently clear to impliedly repeal the right expressly conferred by s 405 of the Criminal Law Act. That was the basis upon which I eventually held that the accused could make an unsworn statement in this trial.
38 The position regarding s 410 of the Criminal Law Act is more complex. In the first place, it is difficult to see why Norfolk Island alone should require three separate provisions, in two different Acts, to deal with the phenomenon of police who mislead suspects about the strength of the evidence against them.
39 As previously noted, s 410 of the Criminal Law Act finds its place in the law of Norfolk Island only because the Crimes Act 1900 (NSW), as it stood in December 1936, forms the basis of the Island's substantive criminal law. As will be noted when I deal with the question of its proper construction, the section was largely peculiar to New South Wales. Sensibly, the New South Wales Parliament repealed s 410 in 1995 when it adopted the uniform evidence law. Plainly, it recognised that there was no longer any need to retain that section in the light of the new and comprehensive regime that now governed the admissibility of confessions and admissions.
40 It is highly likely that the Norfolk Island legislature simply overlooked the fact that s 410 was no longer needed once the Evidence Act 2004 came into operation. Nonetheless, the section is still on the statute books of Norfolk Island. Unless it has been impliedly repealed, it continues to operate, in tandem with ss 85(2) and 138(2)(b) of the Evidence Act 2004, and must be given full effect.
41 The test of whether there has been an implied repeal of an earlier provision is essentially as follows: Are the provisions of the later Act so inconsistent with, or repugnant to, the provisions of the earlier Act that the two cannot stand together: Churchwardens and Overseers of West Ham v Fourth City Mutual Building Society [1892] 1 QB 654 at 658.
42 Francis Bennion, in Statutory Interpretation (3rd ed, Butterworths, 1997) p 225, describes this principle as a logical necessity, since two inconsistent laws cannot both be valid. He adds, however, that the possibility of implied repeal goes further than this. Other interpretative criteria may indicate implied repeal, for example, the presumption that the legislature wishes to avoid an anomalous result.
43 In Butler v Attorney-General (Vic) (1961) 106 CLR 268, Fullagar J (at 276) observed that there is a strong presumption that the legislature does not intend to contradict itself but in fact intends both Acts to operate within their given sphere. It may well be that provisions of two Acts that appear to conflict are in fact intended to operate, as it were, in parallel. It appears, therefore, that there is a heavy onus on a party asserting an implied repeal.
44 Courts have often been required to consider whether a later statute has repealed an earlier statute, not by express words but by implication. In Goodwin v Phillips (1908) 7 CLR 1, Griffith CJ enunciated (at 7) a "wholly inconsistent" test in relation to two Acts dealing with the same subject matter. He added that if the provisions were not wholly inconsistent, but might become inconsistent in their application to particular cases, then to that extent there would be an implied repeal.
45 Other tests enunciated at various times include whether it was intended that one Act stand in place of another: Mitchell v Scales (1907) 5 CLR 405 at 417 per Isaacs J; and whether effect can be given to both Acts at the same time: Rose v Hvric (1963) 108 CLR 353 at 360. D C Pearce and R S Geddes, in Statutory Interpretation in Australia (6th ed, LexisNexis, 2006) p 253, suggest that the more detailed and elaborate the later Act the more probable it is that it will be held to have impliedly repealed the earlier: Jennings Industries Ltd v Commonwealth (1984) 57 ACTR 5 at 21.
46 In Saraswati v The Queen (1991) 172 CLR 1 Gaudron J stated (at 17-18):
"It is a basic rule of construction that, in the absence of express words, an earlier statutory provision is not repealed, altered or derogated from by a later provision unless an intention to that effect is necessarily to be implied. There must be very strong grounds to support that implication, for there is a general presumption that the legislature intended that both provisions should operate and that, to the extent that they would otherwise overlap, one should be read as subject to the other … . More particularly, an intention to affect the earlier provision will not be implied if the later is of general application … . Nor will an intention to affect the earlier provision be implied if the later is otherwise capable of sensible operation." (Footnotes omitted.)
See also Ferdinands v Commissioner for Public Employment (2006) 225 CLR 130 at 145-149 per Gummow and Hayne JJ, and at 149-150 per Kirby J; as well as the earlier discussion by Hunt J in Australian Oil Refining Pty Ltd v Cooper (1987) 11 NSWLR 277 at 280-283.
47 Mr Howard submitted that it was particularly significant, as the explanatory memorandum showed, that the model chosen by the Norfolk Island legislature for the Evidence Act 2004 was the Commonwealth statute and not the New South Wales statute. He submitted that the significance lay in the fact that there was no need, in the Commonwealth version to address any possible overlap with a provision such as s 410. That was because that section had no application beyond the boundaries of New South Wales, and did not apply, in any event, to proceedings in the Federal Court, or Family Court. Had the Norfolk Island legislature used the New South Wales statuteas the model for its version of the uniform evidence law, it would no doubt have appreciated that s 410 had to be repealed in order to avoid confusion and inconsistency.
48 Mr Howard's explanation as to why s 410 was not expressly repealed in 2004 may well be correct as a matter of history. However, apparent oversight does not establish implied repeal. Indeed, oversight may actually be contrary to the Crown's argument.
49 The point becomes clearer when one considers the circumstances under which the Evidence Act 1995 (NSW)came into force. At the same time, the Evidence (Consequential and Other Provisions) Act 1995 (NSW) was enacted. That Act repealed a series of other Acts in their entirety. It also amended the Crimes Act 1900 (NSW) by expressly repealing, inter alia, s 410. That suggests that to the minds of the drafters of the New South Wales provisions, s 410 had to be expressly repealed, and that no doctrine of implied repeal would be sufficient.
50 Mr Howard properly acknowledged that s 8 of the Evidence Act 2004 presented a significant hurdle to his submission that s 410 had been impliedly repealed.
51 There are other difficulties. In R v Gover (2000) 118 A Crim R 8, Dunford J (with whom Stein JA and Simpson J agreed) rejected a not dissimilar submission that s 409 of the Crimes Act 1900 (NSW) had been impliedly repealed by s 65 of the Evidence Act 1995 (NSW).
52 Dunford J said (at [20]-[21]):
"The two provisions deal with different subject matters even though there may be some overlapping, s 409 deals with admissibility of depositions and statements by witnesses at committal who have died by the time of trial, and s 65 deals with exceptions to the hearsay rule, and renders prior representations admissible in criminal proceedings where the maker of the representation is not available to give evidence. But in none of the cases referred to above did the later Act contain an express provision such as s 8 of the Evidence Act which expressly provides that that Act does not affect the operation of the provisions of any other Act.
There is no room for implied repeal where there is an express provision such as s 8 to the effect that there shall not be any such implied repeal. The effect of that section is that the Evidence Act is not intended to, and does not affect other mechanisms which are provided in State or federal legislation for the admission of evidence: compare Commissioner of Taxation v Karageorge (1996) 22 ACSR 119. In any event, the Parliament regarded s 409 as still applicable because it was repealed and re-enacted as ss 112 to 116, Criminal Procedure Act, by the Crimes Legislation Amendment (Sentencing) Act 1999 (NSW), see Act No 94 of 1999." (Emphasis added.)
53 By analogy, although s 85(2) of the Evidence Act 2004 deals with the admissibility of confessions and admissions, as does s 410, it approaches that subject in a different way. It focuses upon the issue of reliability, and not what the police, or someone else, may have said to the accused immediately before any admissions were made.
54 Section 138(2)(b) of the Evidence Act 2004 plainly overlaps with s 410. However, the two sections do not operate in an identical fashion. Section 410 creates a rule of exclusion, whereas s 138(2)(b) operates more as an exercise of discretion. There are also other differences. For example, the terms "untrue representation" and "false statement" are not necessarily to be equated.
55 There can be no doubt that the Evidence Act 2004 was intended to alter, and not merely restate, the traditional common law rules regarding the admissibility of confessions and admissions. Section 410, on the other hand, was enacted against the background of the common law: see Attorney-General (NSW) v Martin (1909) 9 CLR 713 at 721-722; McDermott v The King (1948) 76 CLR 501 at 507 and 511-512; and R v K (1984) 14 A Crim R 226 at 231. That of itself means that the section does not sit well with the newer provisions.
56 It is plainly arguable that s 410 has been impliedly repealed. That argument is supported by the fact that s 410(1)(b) (which restates the common law with regard to threats or promises held out by persons in authority) has almost certainly been impliedly repealed by the comprehensive provisions that now govern the admissibility of confessions in the Evidence Act 2004. I refer in particular to ss 84 and 85 which cover the field so far as actual force and threats thereof are concerned, and s 85 which implicitly picks up the principles developed at common law in relation to inducements. It seems odd that one part of s 410 may have been impliedly repealed, but not the other.
57 In the end, however, I do not think that it is necessary to express a concluded view as to whether s 410(1)(a) has been impliedly repealed. I propose to deal with Mr Garling's objection to the tender of both the record of interview and the handwritten statement on the basis that he is correct in submitting that that section remains good law in Norfolk Island. If, however, the section has in fact been impliedly repealed, what I am about to say regarding its proper construction (and possible application to the facts of this case) will be largely irrelevant.