HIGH COURT OF AUSTRALIA
GLEESON CJ,
McHUGH, GUMMOW, KIRBY, HAYNE AND HEYDON JJIN THE MATTER OF AN APPLICATION BY THE
CHIEF COMMISSIONER OF POLICE (VICTORIA)APPLICANT/APPELLANT
In the Matter of an Application by the Chief Commissioner of Police (Vic)
[2005] HCA 18
Date of Order: 10 August 2004
Date of Publication of Reasons: 20 April 2005
M49/2004, M50/2004, M102/2004 and M103/2004ORDER
Matter No M49/2004
1. Application for special leave to appeal dismissed.
2. Applicant to pay the intervener's costs of the application.
Matter No M50/2004
1. Application for special leave to appeal dismissed.
2. Applicant to pay the intervener's costs of the application.
Matter No M102/2004
1. Appeal dismissed.
2. Appellant to pay the intervener's costs of the appeal.
Matter No M103/2004
1. Appeal dismissed.
2. Appellant to pay the intervener's costs of the appeal.
On appeal from the Supreme Court of Victoria
Representation:
F X Costigan QC with G J C Silbert for the applicant/appellant (instructed by Victorian Government Solicitor)
D F R Beach SC with A T Strahan for the Age Company Limited, intervening in all matters (instructed by Minter Ellison Lawyers)
Notice: This copy of the Court's Reasons for Judgment is subject to formal revision prior to publication in the Commonwealth Law Reports.
CATCHWORDS
In the Matter of an Application by the Chief Commissioner of Police (Vic)
Practice and procedure – Appeal from order of trial judge to prohibit, for a limited time, the publication of methods and material used by police in murder investigations – Whether appeal to Court of Appeal barred by s 17A(3) of the Supreme Court Act 1986 (Vic) – Whether appeal lay as of right, or only by way of leave – Provision of additional written submissions following conclusion of hearing – Proper procedure to be observed.
Procedural fairness – Whether Court of Appeal decided substantive issues without providing the Chief Commissioner of Police sufficient opportunity to present argument.
Constitutional law (Cth) – Appeal to High Court – Manner of conduct of proceedings in Court of Appeal – Elaboration of record by affidavit evidence – Whether affidavit admissible – Whether orders subject to appeal – Whether disjoined from administration of the law – Whether statutory publication prohibition orders sufficiently connected with concluded criminal trials – Whether necessary and appropriate to consider questions.
Words and phrases – "leave to appeal", "appeal as of right", "procedural fairness", "determination", "interlocutory", "in relation to".
Supreme Court Act 1986 (Vic), ss 17A(3), 17A(4)(b), 18, 19.
Crimes Act 1958 (Vic), s 567.
GLEESON CJ, McHUGH, GUMMOW, HAYNE AND HEYDON JJ. During two separate and unrelated trials for murder[1] in the Supreme Court of Victoria, evidence was led about the methods by which police had investigated the murders and ultimately obtained admissions by each accused. Although the evidence was given in open court, the police wanted to prevent further publication of these methods. The Chief Commissioner of Police (Victoria) (the present appellant – "the Commissioner") applied in each case for orders, pursuant to s 18 of the Supreme Court Act 1986 (Vic), prohibiting publication of the methods that had been used or of any material that would identify some undercover police. In each case, the trial judge made an order prohibiting publication of this information but, contrary to the submissions that had been made by the Commissioner, each order provided that it would remain in force only until a stated day. (The Commissioner had asked that the order be made without any time limit.)
[1]R v Tofilau and R v Favata.
In each case, the order was made or repeated in open court and thereafter was entered in the ordinary way. The settled orders indicate that the applications were made on oral application by counsel for the Commissioner, supported by evidence. In each case, counsel for the Director of Public Prosecutions and the accused were present, at least for that part of the applications dealt with in open court and, in one case, counsel for The Age Company Limited ("The Age"), publisher of that newspaper, also was present in open court.
In each case, the Commissioner sought to appeal to the Court of Appeal of Victoria. Two notices of appeal were filed, each entitled "In the matter of the Supreme Court Act 1986 s18" and "In the matter of The Queen v [the accused person at whose trial the application had been made]". In each appeal, the Commissioner filed a summons seeking two orders:
(a)that the Commissioner "have leave to appeal, if leave be necessary, against the orders" made by the trial judge;
(b)that the orders made by the trial judge "be continued pending the hearing of this appeal"
and such further or other orders as the Court deemed fit.
The summonses came on for hearing by the Court of Appeal on 9 October 2003, being the day before the orders prohibiting publication were due to expire. The Age sought leave to intervene and, there being no other contradictor, was granted that leave. On 12 February 2004, the Court of Appeal made orders in each case that "[t]he application be dismissed". The authenticated orders of the Court of Appeal in each case recorded that the "application" which was dismissed was the application for leave to appeal.
By special leave, the Commissioner appealed to this Court against each of those orders on two grounds: first, that the Court of Appeal erred in failing to hold that the Commissioner had an appeal to the Court of Appeal as of right and, secondly, that the Court of Appeal had denied the Commissioner procedural fairness. Against the possibility that no appeal (whether as of right or by leave) lay to the Court of Appeal against the orders made at first instance, the Commissioner applied for special leave to appeal from those orders. Those applications for special leave were heard at the same time as the appeals.
At the conclusion of the hearing, this Court ordered that both appeals and both applications for special leave be dismissed and that the Commissioner pay the intervener's costs of the appeals and the applications. As was said at the time of making the orders, the applications for special leave were dismissed for the reason that there were insufficient prospects of success of an appeal to warrant a grant of special leave. What follows are our reasons for joining in the orders dismissing the appeals.
The orders at first instance
Sections 18 and 19 of the Supreme Court Act are an example of State legislation, like that considered in James Hardie & Coy Pty Ltd v Seltsam Pty Ltd[2], which performs a double function, namely the creation of obligations and imposition of liabilities together with conferral of jurisdiction with reference to them. The occasion for the exercise of such jurisdiction may arise in the course of adjudication of a dispute of which the Court already is seized, here the two trials for murder. Another example is the third party contribution procedure considered in James Hardie, the exercise of which founded the appeal to the New South Wales Court of Appeal and then to this Court.
[2](1998) 196 CLR 53 at 64-65 [22]-[24].
Section 18 of the Supreme Court Act empowers that Court, "in the circumstances mentioned in section 19", to make a number of different orders. One of those[3] is an order "prohibiting the publication of a report of the whole or any part of a proceeding or of any information derived from a proceeding". Six different circumstances are mentioned in s 19. Only two need be noticed. The Supreme Court may make an order under s 18 "if in its opinion it is necessary to do so in order not to ... (b) prejudice the administration of justice; or (c) endanger the physical safety of any person". An order preventing publication of information derived from a proceeding that would identify a police officer who, at the time of the order, was engaged in some undercover operations may readily be seen to be an order directed to the circumstance identified in s 19(c). By contrast, it may be much more difficult to demonstrate that preventing publication of information about police investigative techniques would be necessary in order not to prejudice the administration of justice.
[3]s 18(1)(c).
In the present cases, the orders that were made at first instance (although cast in different terms) were directed to preventing publication by print or electronic means of particular investigative techniques that police had used. Those techniques depended upon the use of what were called "scenarios" and both orders prohibited publication of the "details" of those scenarios. In addition, both orders prohibited the publication of names or images of the undercover operatives who gave evidence at trial.
It is neither necessary nor appropriate to examine the terms of the orders made at first instance. There was little or no argument in this Court about their terms. It is important, however, to notice that the apparently simple language in which ss 18 and 19 of the Supreme Court Act are cast may conceal a number of difficult questions whose resolution, in any particular case, would bear directly upon the way in which an order made under those sections would have to be framed.
First, the relevant power given by s 18 is to make an order prohibiting the "publication" of certain matters. Even if, as was done in the orders now under consideration, the order identifies the prohibited act of publication by reference to the methods of publication (here, print or electronic means), what is the reach of that prohibition? Does it extend to publication in law reports, in transcripts of evidence, in notes of evidence made by a solicitor (published to another lawyer)?
Secondly, although there may be little doubt about what is meant by "a report of the whole or any part of a proceeding", what is meant by "any information derived from a proceeding"? Is that latter description satisfied if it can be shown that the subject of the publication was a subject dealt with in evidence or argument in the proceeding? Or must the information contained in the report have come to the attention of the publisher (first, only, chiefly) from what was said and done in the proceeding?
These are questions the answers to which may both be informed by, and reflect on, what is meant by the various circumstances mentioned in s 19 – most notably the circumstance described as "prejudic[ing] the administration of justice". But they are not questions that were considered in argument and it would therefore be wrong now to attempt to answer them.
As noted above, the orders made at first instance expired by effluxion of time. In order to allow the Commissioner to challenge the correctness of those orders, orders were made by single Judges of the Supreme Court extending the operation of the prohibitions until the completion of the Commissioner's proceedings, first in the Court of Appeal, and later in this Court. Again, the terms of those extending orders need not be noticed. But what that course of events demonstrates (if it were not otherwise clear) is that the orders which the Commissioner obtained at first instance were not orders that finally determined any right or obligation.
The Court of Appeal's decision
In its reasons, the Court of Appeal did not discuss whether, if an appeal lay to that Court, it lay as of right or only by leave. Rather, the Court addressed the logically prior question whether any appeal lay to the Court of Appeal or was barred by s 17A(3) of the Supreme Court Act. Section 17A(3) provided that:
"Except as provided in Part VI of the Crimes Act 1958, an appeal does not lie from a determination of the Trial Division constituted by a Judge made on or in relation to the trial or proposed trial of a person on indictment or presentment."
Were the orders made at first instance "a determination ... made on or in relation to the trial ... of a person on ... presentment"?
Although the Court of Appeal examined a number of decisions of this Court[4] and the Supreme Court of Victoria[5] touching upon this question, it did not decide whether s 17A(3) precluded an appeal by the Commissioner against the orders that had been made at first instance. Rather, the Court said[6] that it was prepared to assume, without deciding, that the Commissioner was correct in submitting that the Court had jurisdiction and that it made this assumption "for the purpose of enabling [it] to determine the substantive issue debated before [it] – namely whether the trial judges were in error in making the limited suppression orders which they did". The Court said[7] that it was prepared to take this course because it had "reached a firm and united view upon that issue".
[4]For example, Smith v The Queen (1994) 181 CLR 338.
[5]R v Kean and Mills [1985] VR 255; Victoria Legal Aid v Lewis [1998] 4 VR 517.
[6]In the Matter of an Application by Chief Commissioner of Police (Vic) for Leave to Appeal [2004] VSCA 3R at [22].
[7][2004] VSCA 3R at [22].
The Court's reasons canvassed a number of considerations of which three can be seen as most important to the conclusion reached. They were, first, what was called[8] "[t]he principle of open justice", secondly, the practical difficulties presented by questions of duration and the scope of effectiveness of the orders sought[9] and, thirdly, what was thought[10] to be the practical ineffectiveness of orders of the kind made to prevent dissemination of the information among "those who move in 'underworld' circles". The Court concluded[11] that, there being no sufficient countervailing factors, there was "no basis for the making of the orders to suppress indefinitely the matters encompassed by the orders made" where indefinite suppression "would be both offensive to principle and almost certainly ineffectual".
[8][2004] VSCA 3R at [25].
[9][2004] VSCA 3R at [45].
[10][2004] VSCA 3R at [42]‑[43], [46].
[11][2004] VSCA 3R at [47].
The Commissioner submitted that it was apparent from the reasons of the Court of Appeal that the Court had decided the substantive issues which the Commissioner had sought to canvass on an appeal to the Court. The burden of the Commissioner's argument in this Court was that she had had no sufficient opportunity to present argument on those substantive issues and, therefore, had been denied procedural fairness.
Filing further submissions and evidence in the Court of Appeal
That the Commissioner had wanted a further opportunity to make submissions about the substantive issues was said to be shown by a memorandum which counsel for the Commissioner had sent to the Court of Appeal on 8 December 2003, after the oral argument on 9 October 2003 and before delivery of judgment. (The Court of Appeal had not given leave to file further submissions.) The memorandum said that the Commissioner "seeks the opportunity to file further material directly pertinent to the Application for Leave to Appeal and to make further submissions based on that material and the material already before the Court". It went on to say that the Commissioner did not wish to make any further submissions "in relation to jurisdiction".
Two days later, again without leave, the Commissioner filed a further affidavit by the solicitor having the carriage of the matter on behalf of the Commissioner. The deponent deposed to information she had been given by police about the use of investigative techniques, of the kind referred to in the orders made at first instance, in relation to homicides that had occurred in New South Wales, South Australia and Western Australia. With this affidavit, the Commissioner filed further "Supplementary Submissions of the Appellant based on Additional material". Those submissions were said to be limited to the reasons why leave to appeal should be granted and emphasised what were said to be the significance and importance of the issues in the administration of justice in Victoria and elsewhere.
On 15 December 2003, The Age filed what was called a "supplementary note" stating that The Age did not wish to make any further submissions on the question of jurisdiction or the application for leave to appeal. The note said that if leave was granted, The Age wanted to make submissions on the substantive issues and to seek leave to cross‑appeal.
On its face, the course followed appears to depart from, and to be sharply at odds with, orderly procedures for the disposition of matters before an appellate court. In R v Theophanous[12], the Court of Appeal of Victoria had pointed out (not for the first time) that, in an appeal, once argument has been presented at the hearing, leave is necessary before further submissions may be made, and that leave to do so will be granted only in very exceptional circumstances[13]. Yet, without leave, further evidence and further submissions were filed after argument had concluded.
[12](2003) 141 A Crim R 216 at 286 [204].
[13]R v Zhan Yu Zhong [2003] VSCA 56 at [2]‑[4]. See also Eastman v Director of Public Prosecutions (ACT) (2003) 214 CLR 318 at 330 [29].
Further, the course of events described reveals at least some inexactness of understanding of what issues were to be determined by the Court of Appeal. The Commissioner's contention that she was denied procedural fairness proceeded from the premise (not always clearly identified) that the only issue for debate before the Court of Appeal at the hearing on 9 October 2003 was an issue about that Court's jurisdiction. The reasons subsequently published by the Court of Appeal demonstrate that this was an issue which was agitated. The reasons record[14] that the Commissioner and The Age both submitted, in response to queries raised by the Court of Appeal, that the Court had jurisdiction to entertain the application. But it was not demonstrated that this was the only issue for debate.
[14][2004] VSCA 3R at [12], [14].
What was before the Court of Appeal?
There was no evidence or other material to which we were taken that showed that the Court of Appeal confined argument to a question about its jurisdiction. The very abbreviated account of proceedings before the Court of Appeal, given in an affidavit filed in this Court as evidence of what had happened below[15] (there being no transcript of the argument), did not suggest that there was any order made, or anything said in the course of argument, that confined the issues for consideration. Conversely, there was no evidence or material which showed that the Court of Appeal enlarged the proceeding to hear argument as on a full appeal.
[15]cf Government Insurance Office of NSW v Fredrichberg (1968) 118 CLR 403 at 410, 416‑417, 422‑423.
Rather, what were before the Court of Appeal, for argument, were the Commissioner's summonses seeking, first, "leave to appeal, if leave be necessary" and, secondly, continuation of the orders made at first instance. This second aspect of the application was overtaken by the extending orders mentioned earlier. (We were told that the Court of Appeal suggested this course but nothing turns on how or why this happened.) The only live issue before the Court of Appeal was that presented by the Commissioner's application for leave to appeal, if leave were necessary.
Appeal to the Court of Appeal as of right?
If, as the Court of Appeal assumed in its reasons, s 17A(3) of the Supreme Court Act did not preclude an appeal to that Court it was necessary, as the Commissioner's summonses acknowledged, to consider whether an appeal lay as of right or only by leave. Although this question was not mentioned in the Court of Appeal's reasons, those reasons were consistent with the Court assuming that leave was necessary.
Whether leave was necessary depended upon the application of s 17A(4)(b). That section provided that an appeal does not lie to the Court of Appeal without the leave of the Judge constituting the Trial Division, or of the Court of Appeal, from a judgment or order in an interlocutory application except in certain cases.
In Roy Morgan Research Centre Pty Ltd v Commissioner of State Revenue (Vict)[16], it was noted that, on its face, s 17A(4)(b) directed attention to the nature of the application as interlocutory rather than to the nature of the order. It was also noted[17] that the Court of Appeal has taken the view that the substitution of the expression "judgment or order in an interlocutory application" for the expression "interlocutory judgment", which was formerly used, involved no change in meaning[18]. The Court of Appeal has therefore since applied to s 17A(4)(b) the tests adopted in Licul v Corney[19]. The correctness of that approach was not challenged in this Court and it is, for that reason, neither necessary nor appropriate to examine it. But it follows inevitably from that understanding of s 17A(4)(b) that, if an appeal lay to the Court of Appeal, it lay only by leave. The orders which were made at first instance did not finally dispose of any rights[20] and none of the exceptions to s 17A(4)(b) was said to be engaged. (In particular, it was not said that these were cases of "granting or refusing an injunction"[21].)
[16](2001) 207 CLR 72 at 82 [23].
[17]Roy Morgan Research Centre Pty Ltd v Commissioner of State Revenue (Vict) (2001) 207 CLR 72 at 82 [23].
[18]Border Auto Wreckers (Wodonga) Pty Ltd v Strathdee [1997] 2 VR 49; Little v Victoria [1998] 4 VR 596.
[19](1976) 180 CLR 213. See also Hall v Nominal Defendant (1966) 117 CLR 423; Carr v Finance Corporation of Australia Ltd [No 1] (1981) 147 CLR 246.
[20]Licul v Corney (1976) 180 CLR 213 at 225.
[21]s 17A(4)(b)(ii).
It is for these reasons that the first ground of appeal advanced in each case in this Court (that the Court of Appeal erred in failing to hold that the Commissioner had an appeal as of right) failed. It is not necessary to examine what we have called the logically prior question about the operation of s 17A(3). The Court of Appeal having reached no conclusion on that question, we would reserve its consideration for a case in which it was necessary to decide the point.
Want of procedural fairness?
Leave to appeal being necessary, if there was an appeal, it was for the party seeking leave, the Commissioner, to demonstrate to the Court of Appeal why leave should be granted. Showing that there was an arguable case of error was a necessary, but not sufficient, step in obtaining leave. Whether or not the Court of Appeal directed counsel's attention in argument to the logically prior question of whether any appeal lay, the return of the Commissioner's summonses seeking leave to appeal was the occasion to show an arguable case of error. What arguments were advanced, and what evidence was relied on to found those arguments, was a matter for the party seeking leave. The fact that it was later thought that other arguments might have been advanced, or that other evidence might have been relied on, does not demonstrate any want of procedural fairness.
If, as the Court of Appeal concluded[22], there was "no basis for the making of the orders to suppress indefinitely the matters encompassed by the orders", it was open to that Court to conclude that the application for leave to appeal should fail. A conclusion that an order from which leave to appeal is sought is plainly right does not constitute some impermissible foray into issues that would arise only on a grant of leave and the hearing of an appeal. It is no more than an emphatic rejection of one aspect of the argument that must be made in support of a grant of leave.
[22][2004] VSCA 3R at [47].
No want of procedural fairness was demonstrated. It is for these reasons that the second ground of appeal failed.
Other, larger, questions that might have arisen in the appeals, about whether the orders made at first instance or by the Court of Appeal are within the appellate jurisdiction of this Court conferred by s 73 of the Constitution, were not addressed by counsel. There having been no argument of the points, and their decision being unnecessary for disposing of either the appeals or the applications for special leave, we express no view about them. Nor, given the grounds of appeal to this Court, is it necessary or appropriate to express any view about the reasoning of the Court of Appeal on the substantive questions which the Commissioner sought to agitate in that Court concerning the intersection of the need to administer justice openly and the provisions of ss 18 and 19 of the Supreme Court Act.
KIRBY J. Four proceedings were commenced in this Court by the Chief Commissioner of Police (Vic) ("the Chief Commissioner"). Ultimately, each of them concerned a complaint that orders made for the non-publication of evidence in criminal trials in the Supreme Court of Victoria were erroneously limited in their duration and should be extended indefinitely. At the conclusion of argument the proceedings were dismissed. I now state my reasons for joining in the Court's orders.
The history of the proceedings
Two of the proceedings were heard as appeals[23], pursuant to grants of special leave to appeal[24], from a judgment of the Court of Appeal of the Supreme Court of Victoria[25]. That judgment represented the determination by the Court of Appeal of separate proceedings brought before that Court as purported appeals and, alternatively, summonses for leave to appeal, against orders made by two judges of the Supreme Court (Osborn J[26] and Teague J[27]). Those determinations, in turn, decided applications by the Chief Commissioner for orders prohibiting the publication of evidence in the criminal trials over which those judges presided.
[23]In High Court matters M34 and M35 of 2004.
[24][2004] HCATrans 127 at [553].
[25]In the matter of an application by Chief Commissioner of Police (Vic) for leave to appeal [2004] VSCA 3R.
[26]In R v Tofilau, orders originally made on 22 September 2003 by Osborn J in the Supreme Court of Victoria, Trial Division.
[27]In R v Favata, orders originally made on 23 September 2003 by Teague J in the Supreme Court of Victoria, Trial Division.
The orders in issue were made by each judge pursuant to the Supreme Court Act 1986 (Vic)[28] ("the Supreme Court Act"). The orders, the duration of which was later extended in the Supreme Court to the hearing and determination of the proceedings in this Court, were each originally subject to expiry on specified dates after the anticipated conclusion of the respective criminal trials. The Chief Commissioner contended that the orders should have been of indefinite duration, subject to liberty to apply in future to terminate their operation. She argued that, in terminating the operation of the orders as they did, the trial judges had erred, justifying appellate correction.
[28]ss 18 and 19.
Concurrent with the appeals from the judgment of the Court of Appeal, which dismissed the proceedings of the Chief Commissioner[29], special leave to appeal to this Court was sought, directly from the orders of the respective trial judges. Those applications were commenced against the possibility that this Court might decide that no appeal lay from the orders of the trial judges to the Court of Appeal (a jurisdictional question determined by the Court of Appeal[30]). Or alternatively, in case a direct appeal proved available and necessary to permit the Chief Commissioner's arguments of substance to be decided by this Court, as it was put, effectively for the first time on the submissions which the Chief Commissioner sought to advance.
[29][2004] VSCA 3R at [48].
[30][2004] VSCA 3R at [14]-[22].
Before the trial judges, at the time that the Chief Commissioner's respective applications for suppression orders were first made, each of the accused persons was represented. However, there was no representation of either of the accused (who by then had been convicted of murder in each trial) when the Court of Appeal considered the Chief Commissioner's proceedings before it. This Court was told that appeals by the prisoners against their convictions are pending in the Court of Appeal. Those appeals have not been decided. Nothing in these reasons is intended to foreclose any specific complaint of either prisoner concerning the lawfulness of proceedings adopted by police in his case. This Court was informed that the prisoners were aware of these proceedings. However, they did not appear. Nor did they signify a wish to be heard upon the resolution of the issues that the Chief Commissioner asked this Court to decide.
The Court of Appeal permitted The Age Company Limited, publisher of The Age newspaper in Melbourne ("the Age"), leave to appear before it as an intervener. That Court did so having regard to legal authority and to the fact that there would otherwise be no contradictor to the applications made to the Court of Appeal on behalf of the Chief Commissioner[31]. On the return of the appeals and the applications before this Court, the Age again appeared to contest several of the arguments of the Chief Commissioner. It provided written and oral submissions that helped to refine a number of the issues in the proceedings. It was not a party to the proceedings in this Court. Here too it appeared as an intervener.
[31][2004] VSCA 3R at [11].
The hearing of the appeals and applications was expedited. At the conclusion of argument, the Court pronounced orders dismissing the appeals and applications and ordering the Chief Commissioner to pay the costs of the Age. The Court delayed the termination of the operation of the subject orders for a short interval to permit the Chief Commissioner to consider and, if advised, to renew applications to the Trial Division of the Supreme Court for particular extensions of the prohibition on the publication of evidence given in the respective trials identifying police operatives in a way that might endanger their safety. However, the attempt of the Chief Commissioner to secure general orders from this Court affording prohibition for an indefinite period of publication of evidence that would identify the police methods used in the two trials was rejected[32]. And that was the principal objective of the Chief Commissioner in the courts below, as in this Court.
[32][2004] HCATrans 286 at [3065]-[3070].
The background facts
The orders in issue in these proceedings concerned (to use a neutral word) evidence given in the prosecution cases brought separately against Mr Alipapa Tofilau and Mr Lorenzo Favata. Each accused was charged with murder. Each of the trials took place in the Supreme Court in September 2003. In each case the trial was by jury. In each, the accused had been the subject of a police operation designed to secure admissions and inculpating evidence. Each accused had been a prime suspect whom police believed to be responsible for the murders in question. However, in each case police had earlier concluded that they did not have sufficient evidence to establish the accused's guilt.
Evidence was given in each trial by undercover operatives of the Covert Investigation Unit of Victoria Police. Adapting techniques of police investigation that had earlier been employed successfully in Canada and the United States, a "Cold Case Unit" had been established within the Homicide Squad of the Victoria Police. This unit planned strategies that were designed to win the confidence of the accused persons and thereby to procure confessions as well as evidence concerning the murder in question that, in effect, could only be known by the person who performed, or was involved in, the murder. Securing the confessional and other evidence required the undercover agents to work according to "scenarios" designed and developed to establish the conditions in which either the evidence desired by police would be forthcoming or the suspect was exculpated. It is not necessary for these reasons to describe in detail the methods used.
According to evidence tendered for the Chief Commissioner, the methods used to secure the testimony tendered in the trials of Messrs Tofilau and Favata have been deployed in other Victorian cases resulting in six convictions. Three other cases of the same type were said to be awaiting trial in Victorian courts. The methodology was also relevant to undercover police operations in New South Wales and Western Australia. The Chief Commissioner expressed concern that, if the methods and "scenarios" described in the evidence, adduced in open court in the trials of Messrs Tofilau and Favata, became generally known to the public, through reportage of the evidence and counsel's addresses in the subject trials, this would not only diminish the prospects of the successful use of such techniques to clear up unsolved serious crime in the future. It could also endanger the safety of undercover agents, including those presently engaged in covert operations of this kind. By publicity in the general media, knowledge of the new methods would spread in ways less likely to occur than through discussion of the acceptability of such police methods in judicial reasons[33]; legal and academic literature[34]; word of mouth descriptions of the comparatively few spectators who might have attended the Tofilau and Favata trials; or in-prison discussions undermining the effectiveness and safety of the otherwise promising police techniques[35].
[33]cf R v Swaffield (1998) 192 CLR 159; R v Mentuck [2001] 3 SCR 442; R v ONE [2001] 3 SCR 478.
[34]eg Palmer, "Applying Swaffield:Covertly Obtained Statements and the Public Policy Discretion", (2004) 28 Criminal Law Journal 217; Bronitt, "Constitutional Rhetoric v Criminal Justice Realities: Unbalanced Responses to Terrorism?", (2003) 14 Public Law Review 76 at 79; Palmer, "Applying Swaffield Part II: Fake gangs and induced confessions", (2005) 29 Criminal Law Journal 111.
[35][2004] VSCA 3R at [42].
In each case, therefore (and apparently in other cases in other States where the methods have been deployed), applications were made for suppression orders designed to prevent general reportage of that part of the evidence at the trial, or of addresses concerning such evidence, that would publicise the methods with the consequences that the Chief Commissioner sought to avoid.
The first relevant order was made by Osborn J on 22 September 2003 in relation to the trial of Mr Tofilau. It was made following a hearing conducted in part in closed court. The order was in the following terms (omitting the names of specified witnesses):
"1. [Pursuant to s 18(1) of the Supreme Court Act] [p]ublication by print or electronic means of the following material be prohibited:
(i)photographic or any other images of the undercover operatives;
(ii)a report of any part of the proceedings or information derived therefrom which could identify any of the undercover operatives as members of the Victoria Police;
(iii)the names of the undercover operatives;
(iv)the evidence of the witnesses *** and ***;
(v)the evidence of the witness *** save and except for the fact that a confession was made by the accused to police members on 17 March 2002 but not including any detail of police undercover methodology;
(vi)details of the sixteen scenarios comprising such methodology referred to above which will be given in evidence by the aforementioned witnesses;
(vii)the opening and closing addresses of Counsel insofar as they reveal the methodology disclosed by the abovenamed witnesses in relation to the sixteen scenarios;
(viii)the cross-examination of the informant and any police witnesses as to the methodology referred to above;
(ix)the fact of the use of any of the sixteen scenarios as an investigative tool used by the Victoria Police.
...
3.This order remain in force until 10 October 2003.
..."
In the trial of Mr Favata, Teague J on 23 September 2003 made an order in substantially similar terms. Like Osborn J, his Honour declined the Chief Commissioner's request to make the order one having operation for an indefinite time. He too fixed the duration of the order by reference to the anticipated duration of the trial. The orders were later extended whilst the Chief Commissioner's applications and appeals were underway. Such extensions were designed to protect the utility of the proceedings.
The decision of the Court of Appeal
In the Court of Appeal the Chief Commissioner challenged the orders so made and specifically their limited periods of operation. In respect of the orders concerning the trial of Mr Tofilau, the proceedings in the Court of Appeal were commenced on 1 October 2003. According to the record, a notice of appeal bearing that date, and a summons of the same day seeking leave to appeal in the alternative, were presented to the Court of Appeal registry together with a supporting affidavit. The affidavit identified confidential evidence presented by police at the trial of Mr Tofilau and the transcript of the closed court proceedings leading to Osborn J's order. The confidential evidence was produced to the Court registry in a sealed envelope.
Similar documentation was presented to the Court of Appeal registry on 7 October 2003 appealing, or applying for leave to appeal, from the order of Teague J concerning the similar evidence in Mr Favata's trial. In each matter, the documentation was intituled by reference to the proceedings between the Queen and the respective accused. The documents nominated the Chief Commissioner as "appellant" and "applicant" respectively and referred to the Supreme Court Act, s 18, under which each application for the subject orders had been made.
The appeals and applications in the two cases were heard together by the Court of Appeal on 9 October 2003. It was undisputed that the argument in that Court occupied, in all, an hour and a half.
In this Court, the Chief Commissioner was permitted to rely on an affidavit by her solicitor concerning what then followed. This evidence was tendered to establish the complaint which the Chief Commissioner made to this Court concerning an alleged want of procedural fairness, said to have arisen in the course adopted by the Court of Appeal in disposing of the proceedings. It will be necessary to return to the procedure adopted[36]. For the present, it will be assumed that it was permissible and that the evidence is available for consideration by this Court.
[36]See below at [69]-[72].
According to the solicitor's affidavit, on 8 December 2003, a memorandum was forwarded by counsel for the Chief Commissioner to the Court of Appeal which, it was said, made it clear that the Chief Commissioner assumed that the issue to be decided by the Court of Appeal was restricted to "the question of jurisdiction". In the submissions signed by counsel, the Chief Commissioner submitted:
"Nor does [the Chief Commissioner] wish at this stage to make submissions on the substantive issues which will be raised in the Appeal if the Court either assumes jurisdiction or grants leave to appeal. Those substantive issues are complex and may require analysis of interstate and overseas authorities. ... These submissions are limited to the reasons why leave to appeal should be granted".
In addition to the foregoing, further affidavits by the solicitor for the Chief Commissioner and by a police witness, each dated 10 December 2003, were filed in the Court of Appeal registry. The further affidavit of the solicitor referred to communications with police undercover units in other States of Australia; confirmed that methods similar to those used in the instant cases were being deployed in those States; and reported "similar concerns to those expressed by Victoria Police, should the media be permitted to reveal details of the technique [of using undercover scenario investigations]". The affidavit also foreshadowed the likelihood that an application would be made to this Court for special leave to appeal should the decision of the Court of Appeal prove adverse to the Chief Commissioner.
No foundation, in the Rules of Court or in any leave expressly granted by the Court of Appeal, was cited for the course adopted in filing these supplementary materials. Whether they reached the judges of the Court of Appeal is unknown. They were not specifically referred to in the Court of Appeal's reasons, published when its orders were pronounced. This Court has deprecated such actions in respect of its own hearings[37].
[37]Stuart v The Queen (1959) 101 CLR 1 at 10. ("We think we should add that while these reasons were in preparation a communication was made on behalf of the Crown to the Principal Registrar of material said to bear on the prisoner's capacity to understand English. This communication we have entirely ignored and we do not think it ought to have been made.")
Where leave has not been given publicly for supplementary submissions and evidence, the provision of such material to court registries without permission of the court, publicly signified, is a derogation from the principle of the open administration of justice. It should not occur. If new points of importance arise in the case whilst a matter stands for judgment, the proper course (unless statute or court rules permit otherwise) is for the proceeding to be relisted so that an application to enlarge the record can be made and determined in open court. Had that course been followed in the present proceeding, it is likely that the apparent misapprehension on the part of those representing the Chief Commissioner would have been cleared up. The later complaint of procedural unfairness might then have been avoided.
In response to the supplementary submission and affidavits of the Chief Commissioner that were served on it, the Age filed its own "supplementary note" in the Court of Appeal registry on 15 December 2003. This signified that it did "not wish to make any further submissions on the question of jurisdiction or the application for leave to appeal". However, the Age indicated that it wished to "make submissions [in the event that leave to appeal were granted] on the substantive issues in the appeal in response to [the affidavits filed by the Chief Commissioner] including [those] sworn on 10 December 2003". The Age also foreshadowed that, in the event that leave to appeal were granted, it would seek leave to cross-appeal for orders that the orders made in each case be limited to the names or photographic or other images of the undercover police operatives involved and reports of any part of the proceedings that would identify those persons. The Chief Commissioner contended that these submissions, on the part of the Age, indicated the expectation of the intervener in the Court of Appeal that leave to appeal would be decided by that Court separately from, and anterior to, the consideration of "the substantive issues in the appeal". That, it was suggested, was what the Chief Commissioner had also anticipated.
This is not, however, the way the Court of Appeal decided the proceedings. Its reasons were published and orders made on 12 February 2004. The title sheet to the unanimous decision of the Court (Winneke P, Ormiston and Vincent JJA) discloses the approach. The case is described as "In the matter of an application by Chief Commissioner of Police (Vic) for leave to appeal".
After outlining the course of the proceeding and (in general terms) the techniques involved in the activities of the undercover operatives deployed in relation to the respective cases of Messrs Tofilau and Favata[38], the greater part of the reasons of the Court of Appeal was devoted to the preliminary question of whether (as the Chief Commissioner asserted), she was entitled to appeal as of right against the suppression orders; whether (as the Age asserted) the Chief Commissioner required the leave of the Court to appeal; or whether no appeal lay to the Court of Appeal in such a case[39].
[38][2004] VSCA 3R at [8].
[39][2004] VSCA 3R at [14]-[22].
Ultimately, for reasons that will be described below, the Court of Appeal concluded that it had jurisdiction to determine the Chief Commissioner's proceedings. Without finally resolving the issue whether the Chief Commissioner had an appeal as of right or could appeal only if leave were granted[40], it is clear that the Court of Appeal proceeded to treat the matter as an application for leave. The final order made indicates as much[41]; as does the title to the Court's reasons.
[40]See eg [2004] VSCA 3R at [22].
[41][2004] VSCA 3R at [48]. ("[T]he applications should be dismissed.")
Subject to any legislative provisions governing court procedures or any considerations of procedural fairness raised by the course of proceedings, it is common for a court, disposing of leave or special leave, to do so with appropriate consideration of the legal and factual merits of the applicant's case. Where the court reaches a clear view that the applicant's case lacks sufficient merit (and is therefore likely, or bound, to fail if leave were granted), a refusal of leave ordinarily follows. To grant leave in such circumstances would be futile, involving pointless costs to the applicant (and any respondent parties) and the public costs involved in an extended appellate hearing.
In this case the Court of Appeal said that it was prepared, for the purpose of its disposition, to assume that counsel for the Chief Commissioner was correct in his submissions (which were that the Chief Commissioner had a right of appeal or, at least, to seek leave to appeal). The Court of Appeal said[42]:
"[W]e are prepared to assume (without deciding) [this] for the purpose of enabling us to determine the substantive issue debated before us – namely whether the trial judges were in error in making the limited suppression orders which they did. We are prepared to do this because we have reached a firm and united view upon that issue."
[42][2004] VSCA 3R at [22].
In coming to that view, and giving it effect in the way that it did, in the sequence of events described, the Chief Commissioner submitted that the Court of Appeal had deprived her of procedural fairness. Specifically, it had disposed of the proceedings on the footing that there was an "appeal" without affording the Chief Commissioner the right to present full argument as on the return of an appeal. It had expressly assumed that there was an "appeal"; but it had treated the matter, in effect, as no more than an application for leave to appeal. It had failed to respond to the suggested indications in the initial hearing and the requests in the subsequent communication in December 2003, showing that the Chief Commissioner wished to be heard separately and upon additional materials, before the substantive question was decided. And it had deprived itself (in a matter of importance to the Chief Commissioner, other police and the community) of full argument on a point of large significance for the administration of justice in the particular cases and more generally[43].
[43]Moevao v Department of Labour [1980] 1 NZLR 464 at 481; Walton v Gardiner (1993) 177 CLR 378. See also Attorney-General v Leveller Magazine [1979] AC 440 at 450, 458, 465, 468.
The Age contested the suggested breach of procedural fairness alleged by the Chief Commissioner. It had consistently submitted to the Court of Appeal that the only entitlement of the Chief Commissioner to engage the jurisdiction of that Court was if leave to appeal were granted. Supported by the summary of the Chief Commissioner's submissions as reproduced in the reasons of the Court of Appeal[44], the Age argued that the "substantive issue" in that Court had been sufficiently identified and addressed in the initial hearing. In so far as the additional submissions and evidence were pressed upon the Court of Appeal whilst its judgment was under consideration, it was open to that Court (if it gave any consideration to the material) to conclude that there was nothing new in principle or that no reason had been shown why the Chief Commissioner should be allowed to present new and different materials at such a late stage.
[44][2004] VSCA 3R at [31].
The applicable legislation
The relevant provisions of the Supreme Court Act are ss 17, 17A, 18 and 19. So far as applicable, the sections governing the right of appeal to the Court of Appeal provide:
"17.Business to be disposed of by Trial Division constituted by a Judge
(1)The Trial Division constituted by a Judge may hear and determine all matters, whether civil or criminal, not required by or under this or any other Act … to be heard and determined by the Court of Appeal.
(2)Unless otherwise expressly provided by this or any other Act, an appeal lies to the Court of Appeal from any determination of the Trial Division constituted by a Judge.
17A. Restrictions on appeals
(1)An order made by the Trial Division constituted by a Judge –
(a)by consent of the parties; or
(b)as to costs which are in the discretion of the Trial Division –
is not subject to appeal to the Court of Appeal except by leave of the Court of Appeal or by leave of the Judge constituting the Trial Division which made the order.
(2) …
(3)Except as provided in Part VI of the Crimes Act 1958, an appeal does not lie from a determination of the Trial Division constituted by a Judge made on or in relation to the trial or proposed trial of a person on indictment or presentment.
(3A) …
(3B) …
(4)An appeal does not lie to the Court of Appeal –
(a)from an order allowing an extension of time for appealing from a judgment; or
(b)without the leave of the Judge constituting the Trial Division or of the Court of Appeal, from a judgment or order in an interlocutory application, being a judgment or order given by the Trial Division constituted by a Judge, except in the following cases –
(i)when the liberty of the subject or the custody of minors is concerned;
(ii) …".
The reference in s 17A(3) to Pt VI of the Crimes Act 1958 (Vic) ("the Crimes Act") is a reference to the Part of that Act governing "Appeals in criminal cases [and] references on petitions for mercy". By s 567, the Crimes Act provides for a right of appeal in criminal cases. However, the right of appeal so afforded is confined by s 567 (relevantly) to an appeal by "a person convicted on indictment" or presentment. By virtue of the provisions of the Crimes Act, such a person "may appeal under this Part to the Court of Appeal".
Four circumstances of appeal are specified in s 567. They are appeal: "against … conviction on any ground of appeal which involves a question of law alone"[45]; upon a certificate where the appeal is against conviction on a ground of appeal "which involves a question of fact alone, or a question of mixed law and fact"[46]; with the leave of the Court of Appeal (notwithstanding the absence of a certificate) on the lastmentioned grounds[47]; and with the leave of the Court of Appeal against sentence unless the sentence is one fixed by law[48]. Provision is also made in Pt VI of the Crimes Act for an appeal against sentence passed on a person convicted of specified serious offences brought in particular cases by the Director of Public Prosecutions[49]. There is no express provision in Pt VI of the Crimes Act permitting a right of appeal against an order made under s 18 of the Supreme Court Act where the order is made in relation to any criminal proceeding.
[45]Crimes Act, s 567(a).
[46]Crimes Act, s 567(b).
[47]Crimes Act, s 567(c).
[48]Crimes Act, s 567(d).
[49]Crimes Act, s 567A.
The provisions of the Supreme Court Act governing orders prohibiting publication of evidence are relevantly as follows:
"18. Power to close proceedings to the public
(1)The Court may in the circumstances mentioned in section 19 –
(a)order that the whole or any part of a proceeding be heard in closed court; or
(b)order that only persons or classes of persons specified by it may be present during the whole or any part of a proceeding; or
(c)make an order prohibiting the publication of a report of the whole or any part of a proceeding or of any information derived from a proceeding.
(2)This section applies to any proceeding, whether civil or criminal.
(3) …
(4)A person must not contravene an order made … under this section.
Penalty:1000 penalty units or imprisonment for 3 months.
19.Circumstances in which order may be made under section 18
The Court may make an order under section 18 if in its opinion it is necessary to do so in order not to –
(a)endanger the national or international security of Australia; or
(b)prejudice the administration of justice; or
(c)endanger the physical safety of any person;
…".
The resulting issues
Against this background of the history of the proceedings, the arguments of the parties and the applicable legislation, the following issues arise for consideration by this Court:
(1)The constitutional issues:Are the appeals or applications by the Chief Commissioner competent, in accordance with the Constitution, to engage the appellate jurisdiction and power of this Court?
(2)The appeal hearing issue:If so, did the Court of Appeal err in failing or omitting to conclude that the Chief Commissioner had an appeal to it as of right against the orders respectively made in the Trial Division of the Supreme Court by Osborn J and Teague J? Did the Court of Appeal err in failing or omitting to hear such appeals as required by law?
(3)The procedural fairness issue:Did the Court of Appeal err in failing to accord procedural fairness (natural justice) to the Chief Commissioner when it disposed of the substance of her proposed appeal as an application for leave to appeal without affording a full opportunity to her to present evidence and argument in support of her contentions?
(4)The direct approach issue: Having regard to the answers to the foregoing, is special leave required and should it be granted to the Chief Commissioner, to appeal directly to this Court from the orders of the judges in the Trial Division of the Supreme Court of Victoria? Should any time default in that regard be cured so as to permit special leave to be granted and the appeals to be disposed of on their merits?
Three constitutional questions
Questions of jurisdiction and power:In the course of argument in this Court a number of constitutional questions were raised by the Court that had either not been noticed, or not sufficiently identified[50], prior to the hearing. It is necessary to mention these questions although the Court had only limited submissions upon them. This is because they concern the jurisdiction and powers of this Court in the present proceedings. Although neither the Chief Commissioner nor the Age argued a want of jurisdiction – indeed each asserted that jurisdiction existed – it is the first rule of every court, where a real question is raised as to its jurisdiction and powers (or as to the exercise thereof), that the court must satisfy itself that the jurisdiction exists and that the powers may be exercised.
[50]With appropriate notices under the Judiciary Act 1903 (Cth), s 78B.
Reception of evidence as to the proceedings:One of the constitutional questions has already been mentioned in passing. It can be disposed of with relative ease. It concerns the admissibility in this Court of affidavits read on behalf of the Chief Commissioner, designed to show what occurred in the Court of Appeal as relevant to the suggested unfairness of that Court's action in proceeding to dispose of the substance of the Commissioner's submissions.
This Court has held[51], and recently reaffirmed[52], that the "appeals" provided for in s 73 of the Constitution are strict appeals. They require the exercise by this Court of its appellate jurisdiction based on the record of the court from which the appeal comes[53]. Upon this footing, this Court has refused to permit fresh evidence to be tendered once the appellate jurisdiction of the Court is engaged. Opinions have been expressed that have questioned this holding[54]. However, the authority of the Court was not questioned in these proceedings. It should be taken to apply to them.
[51]Victorian Stevedoring and General Contracting Co Pty Ltd and Meakes v Dignan (1931) 46 CLR 73 at 85, 87, 107-110, 112-113; Mickelberg v The Queen (1989) 167 CLR 259 at 265-271, 274-275, 297-298.
[52]Eastman v The Queen (2000) 203 CLR 1 at 12-13 [17], 26 [78], 35 [111], 63 [190], 97 [290].
[53]Mickelberg (1989) 167 CLR 259; Eastman (2000) 203 CLR 1.
[54]Eastman (2000) 203 CLR 1 at 93 [276]-[277], 123 [369]-[370]; Mickelberg (1989) 167 CLR 259 at 282-284, 288.
Is the affidavit that describes the conduct of the proceedings in the courts below new evidence in the sense forbidden by the foregoing authority? Or does it represent nothing more than an attempt to express and describe the record of the earlier proceedings in a way equivalent to a verbatim elaborated transcript of what took place when those proceedings were before the Supreme Court of Victoria? Some intermediate appellate and trial courts have verbatim transcripts of argument in all or most cases. Where these exist it is relatively easy to examine the way in which a case was presented. Such transcripts are commonly treated as part of the record.[55] As such, they would be available to this Court to assist in an otherwise admissible complaint of procedural unfairness.
[55]cf Craig v South Australia (1995) 184 CLR 136 at 180-183.
Evidence beyond the record, to supplement the transcript as recorded by the official shorthand writer has been received by this Court in cases where the record is imperfect or incomplete: see Government Insurance Office of NSW v Fredrichberg[56]. This approach was noted, without disapproval, in Eastman v The Queen[57]. As finally tendered, I do not regard the substance of the affidavit of the solicitor for the Chief Commissioner, concerning what occurred in the Court of Appeal, as understood by that solicitor, as offending against the established constitutional rule. It permissibly elaborates the record. But it must be read with the rest of the record, including the statements in the Court of Appeal's reasons concerning the matters that were submitted to that Court during argument on the hearing.
[56](1968) 118 CLR 403 at 410, 416-417, 422-423.
[57](2000) 203 CLR 1 at 59 [182], 90 fn 354.
Procedural fairness and a superior court:A second question raised by this Court during argument is whether, in the exercise of the appellate jurisdiction of this Court, it is open to a party to challenge a judgment or orders of a State Supreme Court on grounds that contend that those orders are affected by procedural unfairness and liable to be set aside on that basis.
Traditionally, the judges of superior courts, such as a State Supreme Court, were not liable to the prerogative remedies addressed to inferior courts on the basis that they had acted outside their jurisdiction by failing to observe the requirement of procedural fairness[58]. A possible question was raised as to whether that limitation controlled the appellate jurisdiction of this Court in such a way as to exclude relief for procedural unfairness on the part of a superior court of record, such as the Supreme Court of Victoria.
[58]R v Commonwealth Court of Conciliation and Arbitration; Ex parte Ozone Theatres (Aust) Ltd (1949) 78 CLR 389 at 399; R v Metal Trades Employers' Association; Ex parte Amalgamated Engineering Union, Australian Section (1951) 82 CLR 208 at 241; cf R v Gray; Ex parte Marsh (1985) 157 CLR 351 at 393. It has long been established that the constitutional writs provided for in s 75(v) of the Constitution may be issued to officers of the Commonwealth who are also superior court judges in courts created by the Parliament, where they exceed jurisdiction. See the Tramways Case [No 1] (1914) 18 CLR 54 at 62, 66-67, 82-83, 86. Such writs do not, however, apply to a judge of a State court exercising federal jurisdiction vested in that court: R v Murray and Cormie; Ex parte The Commonwealth (1916) 22 CLR 437 at 452-453, 464, 471.
However, nothing was put to this Court that warranted a conclusion different from that of the Court of Appeal. On the basis of the materials in the record, it was open to the trial judges to refuse orders of indefinite duration designed to prevent publication of the police methods disclosed in open court in the trials of the two accused. Deciding in the way the trial judges did was consonant with the legal principles applicable to the exercise of the powers afforded by the Supreme Court Act, s 18. Assuming that this Court might, in a wholly exceptional case, in order to repair a serious injustice, grant special leave to appeal from the orders of a trial judge in circumstances such as this, the present were not exceptional cases of such a kind. That is why the applications were refused.
Orders
The orders of the Court were pronounced at the conclusion of argument on 10 August 2004. The foregoing are my reasons for joining in those orders.