Sentencing Advisory Council – Statutory Minimum Sentences for Gross Violence To: Sentencing Advisory Council 30 June 2011 Queries regarding this submission should be directed to: Contact person Brigid Foster Ph (03) 9607 974 Email [email protected] © Law Institute of Victoria (LIV). No part of this submission may be reproduced for any purpose without the prior permission of the LIV. The LIV makes most of its submissions available on its website at www.liv.asn.au Table of Contents Introduction ............................................................................................................................... 3 Terms of Reference .................................................................................................................... 3 How the factors making the offence of gross violence to which the minimum sentence is applicable should best be satisfied: ........................................................................................... 4 LIV recommendations ............................................................................................................... 5 1. The LIV submits that ―gross violence‖ offence should be framed as a discrete offence ..............5 2. The LIV submits that a new offence of ―gross violence‖ must be defined to preclude first time offenders .............................................................................................................................................5 3. The LIV strongly submits that mandatory sentencing regimes cannot and should not apply to juvenile offenders. ...............................................................................................................................6 4. The LIV submits that the proposal should only apply to serious injury charges where intention and not recklessness is the requisite state of mind. .............................................................................7 5. The LIV submits that the offence should contain an element of ―severe injury‖ ..........................7 6. The LIV submits that the offence of gross violence should contain at least two of the following elements ..............................................................................................................................................8 How the exceptional circumstances in which a court may impose a non-parole period of less than the statutory minimum should best be specified ....................................................... 8 7. The LIV submits that the offence of ―gross violence‖ should be accompanied by a nonexhaustive ―special circumstances‖ provision. ...............................................................................................9 The likely effects of the recommendations and options put forward by the Council on sentencing levels for the relevant offences and on the number of persons serving custodial and non-custodial sentences; ................................................................................... 10 Examples of where the proposal would lead to the imposition of a disproportionate sentence ................................................................................................................................... 10 Example 1: Mr Brown ..................................................................................................................................... 10 Example 2: Child X ......................................................................................................................................... 11 Example 3: Miss Jones .................................................................................................................................... 11 Example 4: Mr Smith ...................................................................................................................................... 11 Page 2 Introduction The Law Institute of Victoria (LIV) welcomes the opportunity to participate in the consultation on the introduction of statutory minimum sentences (mandatory sentences) for offences of intentionally causing serious injury and recklessly causing serious injury, when either offence is committed with gross violence. We note that the Terms of Reference do not allow for an assessment or advice on the merits of the proposal. Despite this, the LIV must make it clear that we object in the strongest terms to the Governments proposal (―the proposal‖) to introduce mandatory minimum terms of imprisonment. Mandatory sentencing does not fulfil its stated aims; mandatory penalties do not provide a significant marginal deterrent effect, reduce crime rates, nor provide consistency in sentencing1. By their very nature, mandatory sentencing regimes and the ―one size fits all‖ approach to sentencing leads to unjust outcomes, as unequal offenders are sentenced to the same minimum sentence of imprisonment, or more. We believe that independent, highly qualified, professional and experienced judicial officers are best placed to impose the most appropriate sentence, taking into account all the circumstances of the case. We attach our submission to the Attorney General, outlining in detail our opposition to mandatory sentencing, of which statutory minimum sentences are a form. That submission is to be read in conjunction to this one. Despite our strongest opposition to this proposal, we address the Terms of Reference below. This submission is in no way to be read as acquiescence to the proposal, or endorsement of the law, should it be introduced. Terms of Reference The Terms of Reference are as follows: The Government has committed to introduce a statutory minimum sentence for the offences of intentionally or recklessly causing serious injury when committed with gross violence, in the following terms: 1 A four year minimum sentence (ie, non-parole period) will apply to adult offenders, and a two year minimum detention sentence will apply to juvenile offenders aged 16 or 17 The minimum sentence is to apply save in tightly defined exceptional circumstances, such that the circumstances of the case are so unusual that the court is entitled to assume Parliament could not have intended those circumstances to be covered The minimum sentence is to apply where the offence involves gross violence, such as where the offender: Plans in advance to engage in an attack intending to cause serious injury; Engages in a violent attack as part of a gang of three or more persons; See LIV Submission to the Attorney General Statutory minimum sentences June 2011 (attached) Page 3 Plans in advance to carry and use a weapon in an attack and then deliberately or recklessly uses the weapon to inflict serious injury; or Continues to violently attack the victim after the victim is incapacitated. The Terms of Reference request the Sentencing Advisory Council‘s (SAC) advice on the following matters: (a) How the exceptional circumstances in which a court may impose a non-parole period of less than the statutory minimum should best be specified; (b) How the factors making the offence of gross violence to which the minimum sentence is applicable should best be satisfied; (c) The likely effects of the recommendations and options put forward by the Council on sentencing levels for the relevant offences and on the number of persons serving custodial and non-custodial sentences; (d) Any other matters the council considers relevant. How the factors making the offence of gross violence to which the minimum sentence is applicable should best be satisfied: Mandatory sentences lead to harsh and unjust outcomes, where the judicial officer cannot take into account the individual circumstances of the offender or the offence to mitigate penalty below the mandatory minimum. The experience in other jurisdictions with mandatory sentencing regimes shows that, in many cases, a mandatory sentence can be grossly disproportionate to the gravity of the offence in the particular case2. Even if one takes the example of murder, generally considered the most serious offence, it is possible to conceive of examples of where the offender‘s level of blameworthiness is such that a lengthy term of imprisonment would be considered an inappropriate sentence. An elderly, chronically ill person constantly begs her elderly husband of 50 years to take her life, as an act of love, because she is incapable of doing it herself. Finally, under a great deal of constant pressure and great sympathy, her partner agrees and administers a fatal overdose of a drug. This example is unusual, but the offence still constitutes murder, and a very lengthy mandatory term of imprisonment in these circumstances would normally be considered unjust. There are several examples where the government‘s proposal would lead to severe injustice. We have attached some examples to the end of this submission. Mandatory sentencing has an intuitive appeal as a simple method of dealing with serious crime, but has serious, unintended and long-term consequences, especially for juvenile offenders. Stigmatisation, loss of long term employment possibilities, and the severing of pro-social and family ties through incarceration can all lead to increased recidivism3. Further, mandatory sentencing is an extremely costly method for reducing crime (which is a small effect, at best, of mandatory sentencing) as more matters are contested. A Hoel & K Gelb Sentencing Matters: Mandatory Sentencing, Sentencing Advisory Council August 2008, p 13 K Richards ‗What makes juvenile offenders different from adult offenders?‘ Trends & Issues in crime and criminal justice Australian Institute of Criminology, Feb 2011 2 3 Page 4 The potential injustices of mandatory sentences can be ameliorated to a small extent when the legislation pertaining to them is very carefully drafted, and designed to capture only the most culpable and blameworthy offenders. The recommendations below are therefore designed to capture only the most serious range of offending, and the most blameworthy offenders. LIV recommendations 1. The LIV submits that “gross violence” offence should be framed as a discrete offence The motivation to plead guilty to charges disappears under mandatory sentencing regimes. Mandatory sentencing therefore leads to more matters being contested; with nothing to lose, it makes sense for an offender to ―roll the dice‖ and defend a matter in the hope that they are acquitted of the charges. The economic and social costs of running a criminal trial are tremendous. Economic costs include wages for judicial officer and court staff, jury costs and lost productivity, courtroom and capital costs, Office of Public Prosecution costs for both counsel and instructing solicitor, police costs for the Informant to prepare a brief of evidence and organise witnesses to attend court for both a contested committal hearing and the trial itself, witness lost productivity, and the costs of counsel and instructing solicitor for the defence – in many cases publicly funded through Victoria Legal Aid. The social cost of contested trials on victims of crime should also not be understated. Victims of crime are more likely to undergo the rigours of cross-examination, as alleged offenders contest charges in an effort to avoid the mandatory sentence. By framing the offence of ―gross violence‖ as a new and discrete offence, some of these issues can be ameliorated. Plea-bargaining opportunities are preserved, so the number of contested trials should not increase to the same extent. If ―gross violence‖ was framed as a discrete offence, the Office of Public Prosecutions (OPP) could still proceed with a charge of Intentionally Causing Serious Injury with Gross Violence in the most serious matters, where the lengthy mandatory sentence would not, ultimately, be a disproportionate sentence. 2. The LIV submits that a new offence of “gross violence” must be defined to preclude first time offenders Empirical studies have shown that mandatory penalties have little or no deterrent effect4. Imposing lengthy terms of imprisonment or detention on first time offenders, who may not offend again, is therefore an extremely unjust and disproportionate response if deterrence is the purpose of such mandatory sentencing. Further, if punishment of the offender (in the absence of any deterrent effect) is the purpose of the proposal, then the LIV submits that the current discretionary sentencing is sufficient, in that it allows the judicial officer to impose lengthy terms of detention or imprisonment where appropriate considering the gravity of the offence and the circumstances of the offender. Therefore, any mandatory sentence over and above what would otherwise be imposed would be disproportionate to the gravity of the offence. 4 A Hoel & K Gelb Sentencing Matters: Mandatory Sentencing, Sentencing Advisory Council August 2008, p 13 Page 5 If the purpose of mandatory sentencing is to prevent crime through the incapacitation of the offender, then first time offenders must be precluded. The prediction of risk of future offending is an extremely inexact science, especially where there are no prior convictions to consider5. Even in discretionary sentencing regimes, there is a great risk of ―false positives‖ – ie- the incapacitation of those offenders who would otherwise not have reoffended, where incapacitation is the purpose of sentencing. 3. The LIV strongly submits that mandatory sentencing regimes cannot and should not apply to juvenile offenders. Juvenile offending differs from adult offending in a number of ways. While juveniles commit crime disproportionately6, they also mostly ―grow out‖ of offending behaviour and into law-abiding citizens as they mature7. They are also uniquely capable of being rehabilitated, and this is recognised in matters to be taken into account sentencing, in s362 Children, Youth and Families Act 2005, reflected in R v Mills8 where Batt JA accepted the following submissions as correct: ―i. Youth of an offender, particularly a first offender, should be a primary consideration for a sentencing court where that matter properly arises. ii. In the case of a youthful offender rehabilitation is usually far more important than general deterrence. This is because punishment may in fact lead to further offending. Thus, for example, individualised treatment focussing on rehabilitation is to be preferred. (Rehabilitation benefits the community as well as the offender.) iii. A youthful offender is not to be sent to an adult prison if such a disposition can be avoided, especially if he is beginning to appreciate the effect of his past criminality. The benchmark for what is serious as justifying adult imprisonment may be quite high in the case of a youthful offender; and, where the offender has not previously 9 been incarcerated, a shorter period of imprisonment may be justified . The mandatory detention of juvenile offenders may ―interrupt‖ the normal offending trajectory and redirect juveniles away from reintegration and rehabilitation, and back into a life of criminality. Mandatory sentencing may in fact reinforce criminality, which can lead to greater crime rates in the long term. Imprisonment and detention have been shown to be criminogenic10. Mandatory sentencing also contravenes the Convention on the Rights of the Child (CROC), to which Australia is a party. The CROC requires that in all actions concerning children (every person under the age of 18, Article 1), courts must have the best interest of the child as a primary consideration (Article 3), and that sentences imposed must be proportionate to the circumstances of the offence (Article 40(4)), and be subject to appeal (Article 40(2)(v)). By their very nature, mandatory penalties are not appealable on the grounds of being manifestly excessive; therefore, mandatory sentences of juvenile detention or imprisonment contravene the CROC by way of disproportionality and inability to be appealed. Article 37(b) states: ―No child shall be deprived of his or her liberty unlawfully or arbitrarily. The arrest, detention or imprisonment of a child shall be in conformity with the law and shall be used only as a measure of last resort for the shortest appropriate period of time‖ In our view, this article is contravened if a juvenile is detained after a first conviction, unless such detention is necessary for reasons of public safety. This view is consistent with the views of the UN Committee on the Rights of the Child11. Ibid, p 14 K Richards ‗What makes juvenile offenders different from adult offenders?‘ Trends & Issues in crime and criminal justice Australian Institute of Criminology, Feb 2011 7 Ibid, p 2 8 [1998] 4 VR 235 9 Ibid, at 241. 10 D Ritchie Does Imprisonment Deter? A review of the evidence Sentencing Advisory Council April 2011, p19 11 Para 71, General Comment No 10 (2007) Children’s Rights in Juvenile Justice, CRC/C/GC/10, 25 April 2007 5 6 Page 6 4. The LIV submits that the proposal should only apply to serious injury charges where intention and not recklessness is the requisite state of mind. To avoid the potential injustice (disproportionate sentence) that mandatory sentencing poses, only the most culpable and blameworthy offenders, and the gravest type of offending, should be captured. The LIV submits that awareness that the acts committed would probably result in the complainant being seriously injured (recklessness) is not a sufficient threshold of blameworthiness to justify the imposition of a mandatory sentence. The lesser level of blameworthiness constituted by recklessness is reflected in both the lower maximum penalty for an offence of Recklessly Causing Serious Injury (RCSI) (15 years imprisonment12) compared to Intentionally Causing Serious Injury (ICSI) (20 years imprisonment13), and the fact that charges of RCSI can currently be heard summarily in the Magistrates‘ Court14. It is inconceivable that an offence where an offender intends to cause a serious injury should carry the same mandatory minimum as an offence with the lesser mental element of recklessness. Therefore, only charges of gross violence where the offender causes Serious Injury Intentionally should, if the proposal is introduced, attract a mandatory minimum sentence. 5. The LIV submits that the offence should contain an element of “severe injury” Intention and the offender‘s level of culpability should not be the only factor taken into consideration when drafting the offence of ―gross violence‖. In order to capture only the gravest offending and the most culpable offenders, the consequences of the offender‘s actions should also be taken into account. For example, if a person intends to seriously harm another person, but only manages to slightly graze that person (whether through good luck or bad management), then the gravity of the offence is lessened. The LIV therefore submits that the offence of ―gross violence‖ should include a consequential provision, framed in similar terms to s134AB(37) Accident Compensation Act 1985, where ―serious injury‖ is defined as: serious injury means— (a) permanent serious impairment or loss of a body function; or (b) permanent serious disfigurement; or (c) permanent severe mental or permanent severe behavioural disturbance or disorder; or (d) loss of a foetus. The LIV further submits that the injury provision should be framed as ―severe injury‖ so as to avoid confusion with the current common law relating to ―serious injury‖. s17 Crimes Act 1958 s16 Crimes Act 1958 14 Schedule 2, Criminal Procedure Act 2009 12 13 Page 7 6. The LIV submits that the offence of gross violence should contain at least two of the following elements In order to ensure that only the most serious offending is captured by the mandatory sentence, the LIV submits that the offence of ―gross violence‖ should be framed as an exhaustive list, containing the factors proposed in the Terms of Reference: Gross violence means any offence where severe injury is caused, and was committed in circumstances where the offender: (a) Plans in advance to engage in an attack intending to cause serious injury; (b) Engages in a violent attack as part of a gang of three or more persons; (c) Plans in advance to carry and use a weapon in an attack and then deliberately uses the weapon to inflict serious injury; (d) Continues to violently attack the victim after the victim is incapacitated. At least two of the factors above must be included for an offence to constitute ―gross violence‖. We submit that ―incapacitated‖ should be defined as loss of consciousness, or inability to remove themselves from the situation. The LIV further submits that the ―planning‖ must not be immediate or spur of the moment, and the plan must be to commit the serious injury, not just to commit an offence. The LIV would also recommend removal of the word ―gang‖, which most commonly pertains to groups of children or youth. Such a term pre-supposes that this proposal is designed to target youthful offending. How the exceptional circumstances in which a court may impose a non-parole period of less than the statutory minimum should best be specified In the case of Corbiac v Liddy15, Windeyer J said: ―The whole history of criminal justice has shewn that severity of punishment begets the need of a capacity for mercy. The more strict a rule is made, the more serious become the consequences of breaking it, the less likely it may be that Parliament would intend to close all avenues of exception. Especially when penalties are made rigid, not to be reduced or mitigated, it might seem improbable that Parliament would not retain a means of escaping the imposition of a penalty which must follow upon conviction, that it would abolish it, not directly but by a side wind. This is not because mercy, in Portia's sense, should season justice. It is that a capacity in special circumstances to avoid the rigidity of inexorable law is of the very essence of justice.‖ Exceptional circumstances provisions allow a court to take into account those factors, which lessen the culpability of the offender or the gravity of the offence, thereby allowing the judicial officer to impose a just sentence in all the circumstances. In 1999, an exceptional circumstances provision was introduced into the now notorious Northern Territory, ―three strikes‖ property crime law, after a public outcry about the harshness of the law. Those laws were ultimately repealed in 200116 (1969) 119 CLR 257 at 269. Australian Human Rights Commission Commission welcomes repeal of mandatory sentencing laws in NT 19 October 2001 http://www.hreoc.gov.au/about/media/media_releases/2001/01_65.html 15 16 Page 8 The common law in relation to the definition of ―exceptional circumstances‖ is prolific and ambiguous, and for this reason, the LIV submits that the offence of ―gross violence‖ should be accompanied by a ―special circumstances‖ provision. The LIV submits that the offence of “gross violence” should be accompanied by a non-exhaustive “special circumstances” provision. 7. It has long been recognised in the common law, that mental illness or impaired mental functioning (not amounting to mental insanity) can reduce the offenders culpability, reduce the effect of general or specific deterrence as a sentencing consideration, and make the effect of a sentence of imprisonment weigh more heavily on an offender. The Court of Appeal in the case of R v Verdins (2007) 16 VR 269 at 276 restated the principles of R v Tsiaras17 as follows: ―Impaired mental functioning, whether temporary or permanent ("the condition"), is relevant to sentencing in at least the following six ways: The condition may reduce the moral culpability of the offending conduct, as distinct from the offender‘s legal responsibility. Where that is so, the condition affects the punishment that is just in all the circumstances; and denunciation is less likely to be a relevant sentencing objective. The condition may have a bearing on the kind of sentence that is imposed and the conditions in which it should be served. Whether general deterrence should be moderated or eliminated as a sentencing consideration depends upon the nature and severity of the symptoms exhibited by the offender, and the effect of the condition on the mental capacity of the offender, whether at the time of the offending or at the date of sentence or both. Whether specific deterrence should be moderated or eliminated as a sentencing consideration likewise depends upon the nature and severity of the symptoms of the condition as exhibited by the offender, and the effect of the condition on the mental capacity of the offender, whether at the time of the offending or at the date of the sentence or both. The existence of the condition at the date of sentencing (or its foreseeable recurrence) may mean that a given sentence will weigh more heavily on the offender than it would on a person in normal health. Where there is a serious risk of imprisonment having a significant adverse effect on the offender‘s mental health, this will be a factor tending to mitigate punishment. The LIV forcefully submits that the ―special circumstances‖ provision accompanying the ―gross violence‖ provision, if introduced, must include mental illness or impairment, as a reflection of the well understood common law position. The ―special circumstances‖ provision should also include where an offender has taken an oath of undertaking to assist the Crown, or has assisted the police in their investigation. The absence of these ―special circumstances‖ provisions would remove the motivation for an offender to assist police. This would have particular relevance to many complex drug cases, where investigations often rely upon the co-operation of police informers to secure a conviction. Likewise, any evidence of substantial rehabilitation since the commission of the offence should also be taken into account in the ―special circumstances‖ provision, thereby preserving the motivation for an offender to address the underlying causes of their offending, a factor which is ultimately in the communities best interests. 17 [1996]1 VR 398 Page 9 The LIV submits that the ―special circumstances‖ provision should be non-restrictive, to allow the court to take into account any other factors, either singly or in combination, that reduce an offender‘s culpability and make the imposition of a mandatory sentence unjust. The likely effects of the recommendations and options put forward by the Council on sentencing levels for the relevant offences and on the number of persons serving custodial and noncustodial sentences; Charges of RCSI are currently capable of being tried summarily18. However, under the government‘s proposal, the new offence of ―gross violence‖ will be incapable of being heard in the Magistrates‘ Court due to jurisdictional limits19. This means that all charges of the new offence will need to be tried in the County Court, the court that suffers most from issues of backlogs and court delay. The economic and social costs of this proposal are set out clearly in our submission to the Attorney General Mandatory Minimum Sentences (attached). Examples of where the proposal would lead to the imposition of a disproportionate sentence Example 1: Mr Brown20 Mr Brown is a 69-year-old man with no prior convictions. He is very frail and is in the early stages of dementia. He lives in a unit complex in Melbourne, where he spends most of his time attending to the garden outside his unit. English is not his first language. The victim in the matter is a 25-year-old man with an extensive criminal history and an addiction to drugs. His girlfriend lives in a flat near to Mr Brown, and he spends a lot of time around the flats. According to Mr Brown, he also deals drugs around the area and causes trouble, which the police concede. Mr Brown says that he loaned some money to the victim some time prior to the incident, and despite numerous requests, the victim had refused to pay him back. On the day in question, Mr Brown was pruning his roses with a box cutter when he saw the victim sitting in his car. He asked the victim whether he had the money to repay him, and an argument ensued. During the argument, the victim struck out at the accused with the box-cutter. The cut was quite deep and bled a lot. During the altercation, the victim knocked Mr Brown to the ground. Mr Brown suffered injuries to his arms, hands and face, and was transported to hospital by ambulance. Mr Brown was been charged with RCSI and ICSI in relation to this incident. Schedule 2, Criminal Procedure Act 2009 s113 Sentencing Act 1991 20 Not Mr Brown‘s real name, as the case is currently proceeding through the courts. 18 19 Page 10 It is likely that Mr Brown will plead to one count of RCSI. In all the circumstances, it is unlikely that Mr Brown would receive an immediate custodial term under the current discretionary system. He is elderly and infirm and suffering from the early stages of dementia, has no prior convictions, and will plead guilty at an early opportunity. English is not his first language, and prison would be particularly hard on him. However under the government‘s proposal, and in the absence of a widely drafted ―special circumstances‖ provision, Mr Brown would face four years imprisonment. Example 2: Child X Miss X is 16 years old and attends a school in Melbourne. She has no prior convictions, comes from a supportive family, and gets good results at school. Miss X has recently been bullied by Miss Y. That bullying has been particularly vicious and relentless in nature, and has involved threats, harassment, and the public humiliation of Miss X. It has taken place at school, at the local shopping centre, and via Facebook. As a result, Miss X has been suffering from depression. On the day of the offence, Miss X saw Miss Y in the local park. She picked up a rock and hid behind a tree to avoid taunts. Miss Y approached her and taunted her and Miss X snapped and threw the rock at Miss Y, hitting her in the mouth. Miss Y suffered from broken teeth and a cut lip. Under the government‘s proposal, Miss X would be sentenced to two years detention in a Youth Justice Centre, regardless of her previous good character, the fact that she suffers from depression, and the severe provocation of the circumstances of the offending. Example 3: Miss Jones Miss Jones is 18 years old. She has no prior convictions. Miss Jones was sexually abused from the age of eight by her stepfather. On the day in question, Miss Jones became involved in a domestic argument with her stepfather, during which he taunted her in relation to the sexual abuse. Despite not being in any immediate danger from him, nor needing to defend herself in any way, Miss Jones picked up a knife from the kitchen, walked into the next room and stabbed the victim in the arm, causing a serious but not lifethreatening injury. Under the government‘s proposal, and notwithstanding the mitigating circumstances and history of sexual abuse, Miss X would be sentenced to a mandatory minimum of four years imprisonment. Example 4: Mr Smith This is an example of a case that resolved upon a sentence indication, some 10 years ago. This case is included to illustrate that mandatory minimum sentences, if introduced, will exacerbate the issue of court delay. This case would proceed to trial, under the government‘s proposal. Mr Smith was a 19-year-old man with prior convictions for drug related offending, stemming from a horrible background of prolonged sexual abuse, described by his caseworker as ―the worst I have seen in 15 years‖. He and a co-accused approached a man in the city and demanded his mobile phone. The co-accused was carrying a carving knife, and when the man refused to hand over the phone, the co-accused stabbed him. Mr Smith offered to plead guilty to a charge of RCSI, put on the basis that the stabbing went beyond what the prior agreement had involved. Page 11 The Crown refused to accept the plea, but the case ultimately resolved when the Judge indicated that Mr Smith would be sent to YTC in the event of a plea. Mr Smith did so and was sent to YTC for 18 months. Page 12
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