It must be now accepted that it is essential to first set the appropriate sentence and then to move to consideration of the modes by which the sentence can be served.
33 The Court in Zamagias cited the following authorities in support of the rule: R v Percy [1975] Tas SR 62 at 73; Stevens v Giersh (1976) 14 SASR 81 at 82; R v Jurisic (1998) 45 NSWLR 209; R v Wegener (1999) NSWCCA 405; Dinsdale v The Queen (2000) 202 CLR 321 at 346 per Kirby J; JCE (2000) 120 A Crim R 18; R v Blackman and Walters [2001] NSWCCA 121 at [50] to [52]; R v LRS [2001] NSWCCA 338. Later mentions of the rule include Douar v Regina [2005] NSWCCA 455. Jurisic was concerned with orders for home detention and, to a degree, orders for periodic detention. These orders are fundamentally different to orders suspending a sentence: they concern the kind of detention by which a sentence of imprisonment is to be served, whilst an order suspending the sentence operates (whilst the conditions are satisfied) to stay execution of the whole or part of the sentence. It follows, as it seems to me with respect, that Jurisic does not deal with the appropriate procedure for considering whether to suspend a sentence. Wegener concerned an order for periodic detention where the primary judge stated that the sentence was longer than it would have been had a term of full-time detention (to use the term used in s3 of the Sentencing Procedure Act to refer to imprisonment that is to be served by way of periodic detention or home detention) been imposed. This was held to be in error for the principal reason that the effect of failure to comply with the requirements of periodic detention was that the offender was required to serve the whole of the balance of the sentence. Obviously, this could not fairly occur if, in effect, the term of full-time detention had been increased beyond what it would have been had no periodic detention order been made.
34 Dinsdale v The Queen concerned suspended sentences passed under the Sentencing Act 1995 (WA). Section 39 of that Act set out a graduated scheme of sentencing options from passing no sentence at all, through to imprisonment, including inter alia "suspended imprisonment" and requiring the court to dismiss as inappropriate the options listed before the option chosen. The statutory scheme is therefore markedly different from that of the Sentencing Procedure Act. The power to suspend a sentence derived from s 76 of the WA Act which relevantly provides:
"(1) A court that sentences an offender to a term of imprisonment, or to an aggregate of terms of imprisonment, of 60 months or less may order that the whole of the term or terms be suspended for a period set by the court; but not more than 24 months.
(2) Suspended imprisonment is not to be imposed unless imprisonment for a term or terms equal to that suspended would, if it were not possible to suspend imprisonment, be appropriate in all the circumstances."
35 The reason for s76(2) is obvious: if the suspension be lifted and the sentence therefore required to be served, it must not be longer than would be appropriate punishment for the crime. As Kirby J pointed out (202 CLR 344-6), there is a "conceptual incongruity" inherent in the suspension of a sentence and it is important that "courts…attend to the precise terms in which the option of suspended sentences of imprisonment is afforded to them and avoid any temptation to misapply the option where a non-custodial sentence would suffice and…keep separate the two components of such a sentence, namely the imposition of a term of imprisonment and the suspension of it where that is legally and factually justified". His Honour went on to say (ibid at 346, omitting references) -
The common failure of Parliaments to state expressly the criteria for the suspension of a term of imprisonment has led to attempts by the courts to explain the considerations to which weight should be given and the approach that should be adopted. The starting point, given emphasis by the terms of s 76(2), is the need to recognise that two distinct steps are involved. The first is the primary determination that a sentence of imprisonment, and not some lesser sentence, is called for. The second is the determination that such term of imprisonment should be suspended for a period set by the court. The two steps should not be elided. Unless the first is taken, the second does not arise. It follows that imposition of a suspended term of imprisonment should not be imposed as a "soft option" when the court with the responsibility of sentencing is "not quite certain what to do".
36 With respect, I do not read this passage as involving the proposition that the term of the sentence should be set without regard to the question of potential suspension. His Honour's essential point was that the "soft option" must be avoided by determining first whether a sentence of imprisonment (implicitly, of whatever length) was required. The passage was adopted as applicable in New South Wales by this Court in Blackman and Walters where the Court also cited the judgment of Fitzgerald JA in JCE (2000) 120 A Crim R 18 at [17]. If I may say so, Fitzgerald JA's discussion (ibid at 20-21) of the "conceptual incongruity" to which Kirby J referred in Dinsdale is a useful commentary that deserves to be read as a whole -
"[13] The Director of Public Prosecutions referred the Court to an article entitled 'Suspended Sentences and Preventative Sentences: Illusory Evils and Disproportionate Punishments' by a lecturer, Mr Mirko Bagaric, in (1999) 22 UNSWLJ 535, and placed emphasis upon Kirby J's reference in Dinsdale (2000) 115 ACrimR 558: [to] ' ...the tension that exists between the component parts of this sentencing option: the decision to imprison and the decision to suspend.' It was submitted that the 'structure of the [ Crimes (Sentencing Procedure) Act ] as it concerns suspended sentences ... provides something of a conundrum'.
[14] An attempt was made to highlight the perceived 'conundrum' by pointing out that the sentencing judge had not (and perhaps it was implicitly suggested, could not) explain why a suspended sentence was appropriate although a good behaviour bond was not appropriate. The unstated premise appeared to be that there is a necessary inconsistency between conclusions that a good behaviour bond is inappropriate but a suspended sentence of imprisonment is appropriate. Somewhat similar submissions were made in relation to the conclusions necessary to support a decision that there is no alternative other than the sentence imposed and a decision that a suspended sentence is appropriate.
[15] It is desirable not to complicate the sentencing process unnecessarily. The legislative intention seems plain. Section 5(1) of the Crimes (Sentencing Procedure) Act requires a court to consider all possible alternatives and be satisfied that no penalty other than imprisonment is appropriate before it sentences an offender to imprisonment, including a sentence of imprisonment which is suspended. A sentence of imprisonment which is suspended is nonetheless a sentence of imprisonment.
[16] A sentence of imprisonment, including a sentence of imprisonment which is suspended, is a heavier sentence than a non-custodial sentence and is inappropriate if a non-custodial sentence, such as a good behaviour bond, is appropriate.
[17] If the court is satisfied that no penalty other than imprisonment is appropriate, it must determine what term of imprisonment is appropriate. Other questions then arise. By s 12(1) of the Act, one of the questions to be considered when the appropriate term of imprisonment is not more than two years, is whether execution of the sentence should be suspended. When that question falls for consideration, the same considerations as were relevant in determining whether a sentence of imprisonment was called for and if so what term of imprisonment was appropriate, again fall for consideration in determining whether execution of the sentence should be suspended. Broadly stated, as Kirby J pointed out in Dinsdale , the material considerations are the objective features of the offence and the personal considerations applicable to the offender including considerations of rehabilitation and mercy.
[18] Often, as in the present case, the material considerations in sentencing will point in different directions. The sentencing process requires the court to balance those considerations. A balancing of the considerations which led to a conclusion that no sentence other than imprisonment is appropriate may, nonetheless, lead to a decision that execution of the sentence should be suspended.
[19] A sentencing judge must explain his or her decision. That might require discussion of some other sentencing options with reasons why those options were not adopted. For example, that is implicit in s 5(1) and expressly provided for by s 5(2) of the Crimes (Sentencing Procedure) Act . However, it is obviously unnecessary for every possibility to be discussed in every case. For example, it is unnecessary to explain why community service is not an appropriate sentence for a murderer. Further, the ultimate decision, for example, whether a term of imprisonment should be eight years or nine years, frequently involves a subjective judgment, based on experience as well as information, which cannot be precisely and comprehensively articulated."
37 In Blackman and Walters Wood CJ at CL (with whom the other members of the Court agreed) said -
"[51] His Honour did not here expressly go through a two step process. It was submitted that, had he done so, he would have reached a conclusion in the first step that sentences in excess of two years were warranted. Upon such a finding, their suspension would not have been possible, since S 12(1) of the Crimes (Sentencing Procedure) Act 1999 only permits suspension where the sentence is for a term of not more than two years. So, it was submitted, error had been shown.
52 The vice to which the observations in Dinsdale were directed appears to me to be that which can arise where, in a state of uncertainty as to the proper sentencing order, a Judge selects a suspended sentence as a 'soft option'. This submission does, however, need to be considered in the light of s 5(1) of the Act, which provides:
'A Court must not sentence an offender to imprisonment unless it is satisfied, having considered all possible alternatives, that no penalty other than imprisonment is appropriate.'
53 I am not persuaded that his Honour, as a very experienced trial Judge, was unaware of the requirements of the law in determining an appropriate sentence, or that being in doubt, he looked for a soft option and then chose the maximum sentence for which suspension was permissible. Had that been his approach then error would have been demonstrated."
38 With respect, this passage does not suggest that it is an error for a sentencing judge to have in mind that the sentence might (or even should) be suspended when determining the term of the sentence. It is, in substance, directed to the necessity of deciding "no penalty other than imprisonment is appropriate" before moving to consider whether a the sentence should be suspended and to the error involved in selecting the maximum sentence that might be suspended as the "soft option".
39 In R v LRS, Sully J said -
"[64]…What this particular case required was a very careful consideration, in a precise way, of what alternatives were available under the [ Sentencing Procedure ] Act to the passing of a sentence of imprisonment. That is to say, what was required was a level-headed consideration of the alternatives for which provision has been made variously under ss 8, 9, 10 and 11 of the Act.
[65] If there had been a proper consideration of those alternatives then, as I understand the scheme of the Act, it necessarily followed that a sentence of imprisonment must be passed. I do not mean passed and served in full time custody. I mean passed. That done, it was then necessary to consider, and to decide, whether service of the sentence thus passed should be: (a) suspended pursuant to s 12; (b) service by means of home detention pursuant to s 7; (c) service by means of periodic detention pursuant to s 6; or, (d) service in full time custody.
[66] My purpose in saying all of that, I repeat with emphasis, is not to suggest that from now on it will be a ground of appeal to this Court that a sentencing Judge has not meticulously set out, as though in a prescribed check list, a precise series of procedural steps of the kind which I have just outlined; and has thereafter meticulously marked each with a tick or a cross as the Judge might think appropriate.
[67] My purpose is rather to suggest that, given the particular nature of the present case, the taking of time to sift carefully through the statutory scheme and the alternatives provided by it must have resulted, as I respectfully think, in a conclusion that it could not possibly be correct, given the objective gravity of what is involved in the present matter, to have dealt with it by any of the alternatives made available by ss 8, 9, 10 and 11 of the Act.
[68] In other words, it seems to me that a proper and methodical approach must have made it at once apparent that at the very least a sentence of imprisonment needed to be passed formally, if only as a means of a proper public denunciation of behaviour which, in my view, was on the objective circumstances extremely serious behaviour…"