1994

THE PARLIAMENT OF THE COMMONWEALTH OF AUSTRALIA

SENATE

CRIMES(SEARCHWARRANTS AND POWERSOF ARREST)AMENDMENT BILL 1994

EXPLANATORY MEMORANDUM

(Circulatedby authorityof theHonourableDuncanKerr MPMinister for Justice)

S2Sl6Cat. No~9440331

CRIMES (SEARCHWARRANTS AND POWERSOFARREST)AMENDMENT BILL 1994

OUTLINE

GeneralOutline

Thepurposeof theBill is to amendtheCrimesAct 1914 to inserta newPQIt1AA -SearchWarrantsandPowersof Arrest. Thenewpartis basedon therecommendationsoftheReviewof CommonwealthCriminalLaw. It providesspecificpowersandsafeguardsin relationto the investigationof thebulk ofCommonwealthoffences.Thenewpartmakesprovision for obtainingandexecutingsearchwarrants,including telephonewarrants,stoppingandsearchingconveyances,arrestandrelatedmatterssuchaspersonalsearches,taking anddestroyingfingerprints,holding identificationparadesandotheridentificationprocedures.

TheBill replacestheexisting provisionsof theCrimesAct dealingwith theissueof searchwarrantsandpowersofarrestandspellsoutdetailsofthemannerin which thesepowersmay beexercised.Much ofthis detail iscurrentlydealtwith undercommonlaw, StateandTerritory law or in policeinstructions,generalordersandpracticeandhencegenerallyunavailableto thepublic. The Bill is designedto makepublic thepowersof police and the rightsof individuals in the importantareasofpolice investigationwith which it deals.The unavailability ofthedetails is incompatiblewith modemconceptsofopenadministrationandaccessto justice.

Outlineof newPart1AA

Division 1 - Preliminaiy - ThisDivision definesvarioustermsusedandsetsoutthe relationshipbetweenPart I AA andotherlawsof theCommonwealthandtheTerritories.

Division 2-SearchWarrants- This Division setsout therequirementsfor theissueof searchwarrants,including telephonewarrants,andthepowerswhichare,ormaybe,conferredby suchwarrants. It providesspecificpowersinrelationto seizureofpropertyandtheuseofelectronicandotherequipmentduringtheexecutionof a searchwarrant. Searchesof personsmay only beconductedwhereexpresslyauthorisedby thewarrantandonly frisk orordinarysearchesmay be authorised.

Division 3-Stoppingandsearchingconveyances- This Division re-enactsthepowerfor aconstableto stopandsearchavehicle without warrantin emergency

2

situations. It replacestheexistingemergencypowerscontainedin sections1OAandlOB oftheCrimesAct whicharerepealedby clause5 oftheBill.

Division 4-Arrestandrelatedmatters- This Division providesforpowersofarrestwithoutwarrantby ~policeandcitizensandadditionalconditionson theissueofwarrantsfor arrest. It conferspowersubjectto stringentsafeguardstoconductsearchesofpersons,including strip searches,uponorafterarrestandregulatestheconductof identificationparades,the takinganddestructionoffingerprintsandotheridentifyingmaterial.

Division S -General- This Divisionprovidesrules for theconductof frisk andordinarysearchesofpersons,requiresannouncementbeforeentryontopremisesandcreatesoffencesin relationto the obtainingofsearchwarrants.ThisDivision alsodealswith the retentionandreturnofseizeditems. Generallyitprovidesthat thingsseizedcanonly beretainedfor aslong astheyarerequiredfor usein evidence.ThingsseizedundertheemergencypowerscontainedinDivision 3, mayonly beretainedfor 60 dayspendinginstitutionofproceedings,unlessforfeitedor forfeitableorarethesubjectof adisputeasto ownership,buttheperiodmay be extendedby courtorder. This follows similarprovisionsnowcontainedin sections1OD and1OEof theCrimesAct whicharerepealedbyclause5 oftheBill. Legalprofessionalprivilegeis expresslypreserved.

FINANCIAL IMPACT

The amendmentsarenotexpectedto haveany financialimpacton Governmentexpenditure.Theremaybe someoverallbenefitaccruingto theStatesandTerritories,in thecourtsof whichpursuantto theJudiciaryAct 1903 orotherCommonwealthlaws,trials forCommonwealthoffencesareconducted,in termsofreductionof trial timesby virtueofreducedcontestsoverevidence.

3

NOTESONCLAUSES

ClauseI-ShortTitle

This clauseis formal. It providesfor theshorttitle of theBill andcitesthe

CrimesAct 1914asthe “PrincipalAct”.

Clause2 - Commencement

This clauseprovidesthat theAct will commenceon Proclamation.However,the Act will commenceby forceofthisprovision,in theabsenceofaproclamationwithin 6 monthsofRoyalAssent,A delayin commencementwillbe neededfor training purposes.

Clause3 - Interpretation

This clauseamendsthedefinitionof“constable”in section3 ofthePrincipalAct to includeamemberof aStateorTerritory “police service”. This isnecessarybecausenot all jurisdictionsdescribetheirpolice asa “police force”.

Clause4 - Insertionof newPart1AA in PrincipalAct

Thisclauseinsertsthefollowing sectionsafterPart 1 of thePrincipalAct

PART 1AA- SEARCHWARRANTS AND POWERSOFARREST

Division I-Preliminary

Proposedsection3C - Interpretation

Subsection3C(l) is thedefinitionsection. The principalwordsdefinedinclude:

‘constableassisting’in relationto a warrant asnotonly a constablewho isassistingin theexecutionofthewarrantbutalsoapersonwho is notaconstablewho hasbeenauthorisedby theexecutingofficer to assist. However,undersubsection3C(2)a person,whois notaconstableasdefinedin paragraph3C(I)(b),mustnot takepart in searching,orarresting,a person.Thepersonassistingcouldfor examplebe a computerexpertassistingthepoliceto searchforevidentialmaterialaccessiblethroughacomputer.

4

‘evidential material’ as athing relevantto anyoffenceandincludesinformationin an electronicform. Otherprovisions(suchas subsection3F( 1)) providehow‘evidential material’maybe seized,copied,examinedandotherwisedealtwithby thepolice.

‘executingofficer’ is definedin away whichensuresthat a particularconstableis identifiedas beingresponsiblefor the executionof eachsearchwarrant.

‘issuingofficer’ restrictsthe personsauthorisedto issuewarrantsto amagistrateor ajusticeofthe peaceor otherpersonemployedin acourt(apersonwith somelegal training)who havethepowerto issueasearchwarrantor arrestwarrantunderthe law of the Stateor Territory. Therehasbeenjudicial criticism of layjusticeshavingthe powerto issuesearchwarrants.

‘offence’ is definedas an offenceagainstalaw of the Commonwealthotherthanthe DefencePorceDiscipline Act 1982. The definitionalsoincludesanoffenceagainstalawof a Territory, otherthantheAustralianCapitalTerritory.Undersection3 of theCrimesAct 1914,‘Territory” doesnot includetheNorthernTerritory.

‘police station’ includesapolicestationof a Stateor Territory andbuildingoccupiedby the AustralianFederalPolice. The AFP often useStateandTerritorypolicestationsto conducttheir investigationsin localitieswherethereareno AFP buildings.

‘premises’includesaplaceandaconveyance.Undersection3 of the CrimesAct 1914 ‘conveyance’includesan aircraft, vehicle,or vessel

‘seizableitems’ aredangerousitems,suchas weapons,whichcanbe seizedeventhoughtheyarenot evidentialmaterial.

‘Frisk search’,‘ordinarysearch’and‘strip search’of personsarealsodefined.Thesearedealtwith underthe appropriateproposedsections.TheBill doesnotconferanypowerto examineaperson’sbody cavities.

Proposedsection3D - Applicationof Part

Thissectionprovidesthat PartI AA doesnot affectspecialprovisionsin otherCommonwealthlegislationsuchas theCustomsAct 1901,FisheriesManagementAct 1991 andvariousenvironmentallawswhich conferpowersoninspectorsandpolice, nordoesit applyto theexercise,by aconstable,ofpowersunderthe DefenceForceDiscipline Act 1982. Purtherrnore,the powersconferredby thisBill can beexercisedby policeto investigateoffencesunderotherCommonwealthActs notwithstandingtheexistenceof similarpowersunderthoseotherActs. It is proposedto examinethepowersconferredby these

enactmentsasa matterofurgencyto ensuretheir consistencywith theprovisionsoftheBill.

The Partdoesnotapply to offencesagainstthe lawsof theAustralianCapitalTerritory. It is understoodthat theACT will be enactingits own legislation.ThesectionalsoprovidesthatPartMA is not intendedto limit, orexclude,theoperationofa law ofanyotherTerritory relatingto thesubjectmatteroftheBill. Undersection3 oftheCrimesAct 1914 “Territory” doesnot includetheNorthernTerritory.

Division 2-SearchWarrants

Proposedsection3E - Issueof searchwarrants

Subsection3E(l). A warrantto searchpremisescanbe issuedif theissuingofficer is satisfiedby informationon oaththattherearereasonablegroundsforsuspectingthat thereis, or will be,within the next 72 hoursanyevidentialmaterialat the premises. The 72 hour limit permitsawarrantto be obtainedinadvancewhereintelligencesuggeststhat evidentialmaterialis to be takentopremises.The sameproviso iscontainedin theexisting provision(section10).

Subsection3E(2). A warrantto searcha personmaybe grantedif the issuingofficeris satisfiedby informationon oaththat therearereasonablegroundsforsuspectingthat thepersonhas,orwill within thenext72 hourshave,anyevidentialmaterialin his orherpossession.Any suchsearchmustbe limited toa frisk ortrdinarysearch.

Subsection3E(3) providesthat if theconstableapplyingfor thewarrantsuspectsthat, in executingthewarrant,it will be necessaryto usefirearms,thegroundsfor thesuspicionmustbe statedin theinformation. This subsectionis intendedto alertthe issuingofficerto thepossibility of violence. This is consideredparticularlydesirablewhereit is proposedthattacticalresponseunits,specialweaponssquadsand the like will beused.

Subsection3E(4)setsout thematterswhichmustbespecifiedin a warrant.Thesemailersinclude:theoffenceto which thewarrantrelates,adescriptionofthepremises,or thenameordescriptionofthepersonto besearched,thekind ofevidentialmaterialthat is to besearchedfor, thenameof theexecutingofficer,theperiodfor which thewarrantremainsin force (not longerthan7 days)andwhenthewarrantmaybe executed.This lastprovision is intendedto preventtheunnecessaryexecutionofwarrantson homesat night.

Subsection3E(5) setsout theadditionalmatterswhich the issuingofficer is tospecifyin a warrantthatrelatesto premises.Theseincludenon-discretionarymatterssuchasthe fact that thewarrantauthorisestheseizureof things,otherthantheevidentialmaterialfor which it is specifically issued,whicharefound

6

andthat relateto thewarrantoffenceoranotherindictableofkncewhereseizureis necessaryto preventconcealment,lossordestructionoruseofthe thingin thecommissionofan offence. It alsorequiresanexpressstatementasto whetherthewarrantauthorisesa frisk or ordinarysearchof personsat, or near,thepremises.This is designedto ensurethe issuingofficerconsiderstheappropriatenessof authorisingthe searchofpeople.Forexample,wherethepremisesareusedby alargenumberofmembersof thepublic, it would usuallynotbe appropriate.

Subsection3E(6) concernswarrantsthatrelateto thesearchof aperson.In thesametermsassubsection3E(5), it requiresthe issuingofficerto specifywhetherthewarrantauthorisestheseizureofthingsotherthantheevidentiarymaterialfor which it is specificallyissued. In additionto this, it requiresthe issuingofficer to statewhethera frisk orordinarysearchis authorised A ‘frisk search’is aquickrunningof thehandsoverthegarmentswhereasan ‘ordinary search’may involve the removalof limited outergarments.

Subsection3E(7)ensuresthat the7 daylimit on thedurationofa warrantdoesnotpreventthe issueof furtherwarrantsfor thesamepersonorpremises.

Subsection3E(8)providesthat if theapplicationfor awarrantis madebytelephonetheperiodin which it is believedthat theevidentialmaterialwill beon the premisesorpersonis reducedfrom 72 to 48 hoursand thedurationof thewarrantmustbe notmorethan48 hoursandnot 7 daysasfor warrantsobtainedin person.If sucha warrantis notexecutedwithin 48 hoursawarrantmustbeappliedfor in personunlessthe police cansatisfythe issuingofficer ofsuchcircumstancesof urgencyasto authorisethe issueof afurthertelephonewarrant.

Subsection3E(9)providesthat anissuingofficer in New SouthWalesor theAustralianCapitalTerritory may issueawarrantfor thesearchof premisesorapersonin theJervisBay Territory. This recognisesthe fact that thereis noresidentMagistratein theJervisBayTerritory.

Subsection3E(1O)providesthatan issuingofficer in aStateor internalTerritorymay issueawarrantforpremisesorapersonin thatStateorTerritory or in anexternalTerritory. Theofficer may alsoissuesuchwarrantsfor executioninanotherStateor internalTerritory (including theJervisBay Territory) if heorsheis satisfiedthat it is appropriateto do so. Porexample,in amajorconspiracyinvestigationwherewarrantsneedto be simultaneouslyexecutedin anumberofjurisdictions it would be undesirablefor applicationsto bemadeineachjurisdiction,particularlyif officerswith thenecessaryknowledgeofthematterarelocatedin onejurisdiction. This would alsoprotectthesecurityoftheinvestigation.

ProposedSection3F - Authority ofSearchWarrant

Theseprovisionsarebasedonthe recommendationsof theGibbsReview.Subsection3F(1)setsout theactivitiesauthorisedby awarrantto searchpremises.A warrantauthorisesentryandsearch. It authorisesseizureofseizableitemsandevidentialmaterialin relationto thewarrantoffenceor anyotherindictableoffencewherethis is necessaryto preservetheevidence.Thewarrantalsoauthorisesthesearchingfor andrecordingof fingerprintsandotherforensicsamplesfoundat the premises.If a warrantto searchpremisesspecificallyauthorisesthe frisk orordinarysearchofa personat,ornear,thepremises- the executingofficer orconstableassistingis empoweredto searchsuchapersonsuspectedofhavingevidentialmaterialorseizableitems in hisorherpossession.

Subsection3F(2)providesthatawarrantto searcha personis authoritysubjectto the termsof thewarrantto conducta frisk orordinarysearchofthepersonaswell asthesearchof any conveyanceusedby thepersonin the last 24 hoursforthekind of thingsspecifiedin thewarrant, to seizethingsfound,recordfingerprints foundin thecourseof thesearchandto takeforensicsamples.Subsection3F(2) alsoauthorisestheseizureofotherthingsfoundduringthesearchbelievedon reasonablegroundsto be connectedwith eitherthewarrantoffenceor, subjecttoconditions,anotherindictableoffence. The subsectionalsopermitstheseizureofweaponsfoundduring thesearchif that is necessaryto preventrisk ofinjury to personsin thevicinity. Thepowerto recordfingerprintsandsamplesunderthissectiondoesnot includethe taking offingerprintsorsamplesfrom thebodyofa personbut only from clothingoritemsfoundor thepremisesthemselves,paragraph3F(2)(b)only refersto takingthemfrom things.

Subsections3F(3) and(4) obligethoseexecutingthewarrantto comply withlimitationsparticularisedin thewarrantrelatingto thehoursduring which itmaybe executed,andasto the type of personalsearchstipulated.

Subsection3F(5) authorisesthe executingconstableto makethingsseizedunderthewarrantavailableto otheragencieswhereit is necessaryfor thepurposesofthe investigationorprosecutionofan offenceto which thethingsrelate. Policedo notalwayshavethe expertiseto properlyanalysethe thingsseized. In othercasespolice mayseizeitems relevantto anoffenceappropriatelydealtwith byanotheragency(for example,Customs). Thiswasnotaddressedby theGibbsReviewbuthasbeeninsertedto removeany doubtabouttheauthorityandreflectscurrentpractice.

S

ProposedSection3G - Availability ofassistanceanduseofforce in executingawarrant

This sectionrestatesthe commonlaw positionthat,in executingawarrant,theexecutingofficermay obtain suchassistanceandusesuchforceasis necessaryandreasonablein thecircumstances.Wherethepersonassistingis notaconstable,he orshemayonly authorisedto useforce in relationto things(forexample,a locksmithassistingthepolice toopena safe)andnotpersons.

ProposedSection311 - Detailsof warrantto be givento occupieretc.

Thissectionprovidesthat if awarrantin relationto premisesor awarrant inrelationto apersonis beingexecuted,a copy ofthewarrantmustbemadeavailableto the occupierofthepremisesor thepersonbeingsearchedasthecasemay be. In eithercasethepersonresponsiblefortheexecutionof thewarrantmustidentify himselforherself. Becauseit is notpossibleto predictwhetheranypersonsatornearwarrantpremisesneedto be searched,andapersonbeingsearchedunderawarrantin relationto premisesneedonly beshownacopyofthewarrant. In orderto preventforgery orotherwrongfuluseofthewarrantcopy,subsection311(5)providesthat thecopy neednot includethesignatureof the issuingofficerorthesealof theCourt. This provisionhasbeenincludedat the specificrequestof theACT ChiefMagistrate.

ProposedSection33- Specificpowersavailableto constablesexecutingwarrant

Subsection33(1)permitsthe takingof photographs(includingvideo tapes)ofthepremisesorof thingsat thepremisesin certaincircumstances.

Subsection33(2)allows fora limited interruptionin theexecutionofa warrant.Theconstablesexecutingthewarrant,mayif thewarrantis still in force,completeits executionafterceasingandleavingthepremisesfor not longerthanonehour,or longerif theoccupierconsentsin writing.

Subsection33(3)providesthat wherethe executionof a warrantis stoppedbyorderofa courtwhich is laterrevoked,or reversedon appeal,its executionmaybe completedprovidedthewarrantis still in force.

Section3K - Useof equipmentto examineorprocessthings

Subsection3K(l) empowerstheexecutingofficer orconstableassistingto bringto the warrantpremisesany equipmentreasonablynecessaryfor theexamination,orprocessing,ofthingsfoundat thepremisesto determinewhetherthey areliable to seizure.

Subsection3K(2) providesthat, if it is notpracticableto examineorprocessthingsat the warrantpremises,or if theoccupierof thepremisesagreesin

9

writing, thingsat thepremisesmaybe movedto anotherplaceso that theexaminationorprocessingcanbe carriedout. Forexamplea substancebelievedto be narcoticsmay betakento a laboratoryfor analysis- it would not bepracticableto analyseit atmostpremises.UnderSection3ZS itemsfoundnotto be evidenceof an offencemust,unlessforfeited,be returned.

Subsection3K(3) providesthat, if thingscontainingelectronicallystoredinformationaremovedto anotherplacefor examinationor processing,theexecutingofficer must, if practicable,informthe occupierof the placeandtimeatwhich theexaminationorprocessingwill be carriedoutandallow theoccupieror a representativeto bepresentduring theexaminationandprocessing.This links with Section3M(3) which relatesto compensationpayablefor damageto equipmentduring processingof information.

Subsection3K(4) enablespolice to operateequipmentalreadyatthewarrantpremisesto carryout theexaminationorprocessingto determinewhetherthething is liable to seizure.This is especiallyuseful for scanningaudioorvideorecordingsandthelike if the executingofficer or constablebelievesonreasonablegroundsthattheequipmentis suitableandif theexaminationcanbecarriedout withoutdamageto theequipmentor the thing.

ProposedSection3L - Useof electronicequipmentat premises

Subsection3L( 1) providesthat theexecutingofficeror theconstableassisting(whoundersubsection3C(1)may be apersonwho is notaconstablebut isauthorisedby theexecutingofficer to assist,for examplea computerexpert)mayoperateequipmentat the premisesto seewhetherevidentialmaterial isaccessibleif heor shebelievesthattheequipmentmaybeoperatedwithoutdamagingit. The Bill hasdepartedfrom theGibbsReviewby referringtoevidentialmaterialwhichis accessibleratherthanstored,given that satelliteandcabletechnologyis suchthatnow informationmaybe obtainedfrom theequipmentwhich is not actuallystored(for example,acomputerterminal).

Subsection3L(2) providesthat, if evidentialmaterialis accessible,theexecutingofficerorconstableassistingmay seizethe equipmentoranydisk,tapeor otherassociateddevice,or operatetheequipmentto obtain a print outandseizedocumentsproduced,or copy therecordsto anotherstoragedeviceandremoveit from the premises.

Subsection3L(3) is intendedto encouragethe seizureof printoutsorduplicatediscswhereverpossible.It providesthataconstablemayseizeequipmentundersubsection(2)only if it is not practicableto put the materialinto documentaryform or copythem to astoragedeviceor if possessionby the occupierof theequipmentcouldconstituteanoffence. Whereoriginalmaterialis seizedSection3N requiresthepolice to providea copyof thethingor informationtotheoccupierunlessits possessionconstitutesanoffence.

I0

Subsection3L(4) providesthat the executingofficerorconstableassistingmaysecurethe equipmentby locking it upor guardingit if heor shebelievesonreasonablegroundsthat theevidentialmaterialmay beaccessibleby operatingtheequipmentatthepremisesbutexpertassistanceis neededto operatetheequipmentandtheevidentialmaterialmaybe destroyedorotherwiseinterferedwith if the equipmentis not securedin themeantime. This is necessarytoensurethat wheretheequipmentis moresophisticatedthanexpectedandcannotbe accessedormoved,thenthe opportunityto obtainexpertassistanceand topreserveevidentialmaterialisnot lost. Materialaccessibleon acomputercanof coursebe removedwith aswift keystrokefrom anoperator. It is possibletopre-programtheequipmentto erasetheevidencein thisway. This wasnotincludedin theGibbsReviewprovision,but is necessaryfor it to be effective.

Subsection3L(5) requiresthe giving of noticeto theoccupierin caseswhereequipmentmaybe securedfor a periodnotexceeding24 hours.

Subsection3L(6) allows theequipmentto be securedforeither24 hoursorsuchlesserperiodwhenexpertassistanceis obtainedto operatethe equipmentfor thepurposesof the Act.

Subsection3L(7) allowstheexecutingofficerto apply to the issuingofficer foranextensionof the time neededfor securingtheequipmentif he orshebelieveson reasonablegroundsthat the expertassistancewill notbeavailablewithin thatperiod. The applicationmustsatisfythe criteria in subsection3L(4). Theoccupiermustbe givennoticeundersubsection3L(8) andhasaright to beheardin relationto the application. Subsection3L(9) providesthatthe applicationforanextensionmustbemadein the samemanneras anapplicationfor the issueofa searchwarrant.

ProposedSection3M- Compensation

This sectionprovidesthat if damageis causedto equipmentasaresultof itbeingoperatedasmentionedin sections3K or 3L andthedamageresultedfrominsufficientcarebeingexercisedeither in selectingthepersonto operatetheequipmentorby thepersonoperatingit, compensationis payableto theowner.

Compensationis payableout ofa specialappropriationby theParliamentnotfrom thenormalAustralianFederalPolice budget. in determiningtheamountof damagespayableregardis to behadto whetherthe occupierhadprovidedany warningorguidanceto theoperationoftheequipment.This is to minimisecompensationin caseswheretherehasbeenadeliberateprogrammingofsoftwareto destroyorcausedamageif not accessedin aparticularmannerorwheretheoccupierfailed to mitigatedamageby providingwarningorguidance.The inclusionoftheseprovisionswasrecommendedby theGibbsReview.

II

ProposedSection3N- Copiesof seizedthingsto beprovided

Subsection3N(1) requiresaconstable,on request,to giveacopyof athingorinformationseizedthatcanbe readilycopied. Thisdoesnotapply if no originalmaterialwas seizedundersubsection3L(2) or if possessionofthe thing seizedcouldconstitutean offence.

ProposedSection3P-Warrantsby telephoneandotherelectronicmeans

Thissectionenablestheissueof awarrantby telephone,telex,facsimileorotherelectronicmeansin anurgentcaseor wheredelaycouldfnistratetheexecutionofthewarrant. Urgencycanarisebecauseofcircumstancesrequiringimmediateactionorwherethe remotenessof the locationof thesearchinvolvesunacceptabledelay. An applicationunderthis sectionmustincludeall theinformationprovidedin anordinaryapplicationbut, if necessary,the applicationmaybe madebeforethe informationis swom.

The issuingofficer is requiredto inform theapplicantof the termsof thewarrantby theappropriateelectronicmeansandtheapplicantmustcompleteaform ofwarrant which setsout the substanceofthoseterms.The applicantmust,notlaterthanthedayafterexpiryof thewarrant,or thedayafterthewarrantwasexecuted,whicheveris the earlier,giveor transmitto the issuingofficer thecompletedform of warrantandif the informationhadnotbeensworn,thesworninformation.

In anycourtproceedingsconcemingtheexerciseofapowerunderthewarrant,if the warrantsignedby the issuingofficer is not produced,the court is toassume,unlessthecontraryis proved,that thepowerwasnot duly authorised.

Thisprovision is particularlynecessaryin remoteareasor wherefor somereasona courtemployedjusticeof thepeace,authorisedofficerormagistrateisnot readily available. It avoidstheneedto rely on lay justicesof the peaceas analternative. A layjusticeof thepeacecannotissueasearchwarrantunderPart1AA.

ProposedSection3Q - Restrictionsonpersonalsearches

Searchwarrantscannotauthoriseeitherastrip searchorasearchof a person’sbodycavities. Strip searchesin apostarrestsituationaredealtwith in proposedsections3ZF and3ZG.Bodycavity searchesin relationto narcoticsoffencesaredealtwith in theCustomsAct 1901.

12

Division 3 - Stoppingandsearchingconveyances

ProposedSection3R - Searcheswithoutwarrantin emergencysituations

Sections3R and38 re-enactthesubstanceofexisting sections1OA and lOB ofthe CrimesAct 1914whichempowerpolice to conducta searchofaconveyancein anemergency.

Section3R applieswherea constablesuspectson reasonablegroundsthatathing relevantto an indictableoffenceagainstanyCommonwealthor Territorylaw, (excludingAustralianCapitalTerritory law) is in an aircraft,vesselorvehicle. Theconstablemustalsosuspectthatit is necessaryto seizethe thingtopreventconcealment,lossor destructionandthat it is necessaryto actwithouttheauthorityof asearchwarrantbecausethecircumstancesareso seriousandurgent. Undersuchcircumstancesa constablemay stop,detainandsearchtheconveyance,andseizethe thing.

If in thecourseof thesearchtheconstablefinds anotherthing relevantto anyoffenceagainsttheCommonwealthorTerritory law theconstablemayseizeitto prevent its concealment,lossordestructionbecausethecircumstancesaresoseriousandurgent.

Subsection3R(4)providesthattheconstablemustexercisehis orherpowerssubjectto section38 whichprovidesvarioussafeguards.

ProposedSection35 - How aconstableexercisespowerundersection3R

Whena constableexercisespowersundersection3R heor shemayusesuchassistanceasis necessary,mustsearchtheconveyancein apublic placeorplaceto which thepublic havereadyaccessandmustnotdetaintheconveyanceforlongerthanis necessary.

While theconstablemayusenecessaryandreasonableforce to openapart oftheconveyanceoranycontainerhe orshemustnotcausedamageunlessthepersonin chargeoftheconveyancehasbeengiven a reasonableopportunitytoopenthatpartorcontainer.Thereis anexceptionto this requirement,wherethepersonin chargeoftheconveyancehasfled andthereforecannotbegivenanopportunityto openthecontainer,theconstablemayopenit.

13

Division 4 - Arrestandrelatedmatters

ProposedSection3T - Requirementto furnishnameetc.

Thissectionempowersaconstableto askthe nameand/oraddressof apersonwherethesearenotknownto theconstableandheor shebelievesthat thepersonmaybe ableto assistin inquiresin relationtoan offencethat theconstablehasreasonto believehasbeenor mayhavebeencommitted. It variesfrom theprovisionrecommendedby the GibbsReviewby notapplyingtooffencesthat theconstablehasreasonto believearelikely tobe committed.

Subsection3T(2)creates,subjectto certainconditionsprecedent,an offenceoffailing to provideor falsifying the informationrequested.Themaximumpenaltyis 5 penaltyunits (this is $500). Theconditionsarethat theconstableinforms the personof the reasonfor therequestandcomplianceby the constablewith proposedsubsection3T(3).

Subsection3T(3) requiresthat whenrequestedtheconstablemustinform thepersonofhis orherownnameand/orplaceof duty,andif in plainclothes,identification. Thereis apenaltyof5 penaltyunits(this is $500)if theconstabledoesnot comply with the request.Thesesafeguardswererecommendedby theAustralianLaw ReformCommissionandtheGibbsReview.

ProposedSectionIU - Powerof arrestwithoutwarrantby constables

This sectionreplacestheexisting powersofarrestwithoutwarrantconferredonconstableswhicharecontainedin sections8 and8A of theCrimesAct 1914andarerepealedby clauseSofthis Bill. Thenewprovisiondetailsthecircumstanceswhereapersonmay be arrestedwithoutwarrant. Theserelatetovarying specifiedsituationswhereproceedingby summonswould not beeffective.

Subsection3U(1) providesthataconstablemay,without warrant,arrestapersonfor an offenceif theconstablebelieveson reasonablegroundsfirstly thatthepersonhascommittedor is committingtheoffenceandsecondlythatproceedingsby summonsagainstthepersonwould not achieveoneormoreofanumberofspecificpurposes.Thosepurposesare,ensuringthe person’sappearancein court , preventinga repetitionorcontinuationoftheoffenceor thecommissionof anotheroffence,preventingtheconcealment,lossordestructionofevidence,preventinginterferencewith witnesses,preventingthefabricationofevidenceorpreservingthesafetyorwelfareof theperson.Thesepurposeswererecommendedby theGibbsReview.

Subsection3U(2) requirestheconstablein chargeof the investigationwhoceasesto believethat apersonarrestedbutnot chargedeithercommittedthe

14

offenceor that custodyis necessaryto achievea purposereferredto insubsection(1) to releasethe person.

Subsection3U(3) providesthat aconstablemay,withoutwarrant,arrestapersonwhohe or shebelieveson reasonablegroundshasescapedfrom lawfulcustody. It is inappropriatethatthe restrictionrelatingto proceedingsbysummonsshouldapplyin thesecircumstances.This reflectstheview of theGibbsReview.

ProposedSection3V - Arrest of prisonerunlawfully atlarge

This sectionis in the sametermsastheexisting section48B of theCrimesActwhich is repealedby clause5 of this Bill. Thesectionprovidesthataconstablemay,withoutwarrant,arrestapersonwho theconstablebelieveson reasonablegroundsto bea prisoner‘unlawfully at large.’ This is intendedto coverpersonswholeavesomeplaceof detentionwith permissionandwhofail to returnasrequiredor who is releasedin error,for examplea caseof mistakenidentity.Thearrestingconstablemust,as soonaspracticable,takethepersonbeforeaMagistrate.If theMagistrateis satisfiedthat thepersonis unlawfully at largeheor shemayissueawarrantauthorisingthat personto beconveyedto prison(orotherplaceof detention)to undergotheterm of imprisonmentorotherdetentionthattheperson is requiredby law to undergo.

In thissection‘prisonerunlawfully at large’ includesapersonwho is at largeandthesubjectof adetentionordermadeunderPart lB oftheCrimesAct 1914consequenton beingfoundby a courtto be unfit to be tried,beingacquittedofanoffenceon groundsofmentalillnessor beingfoundto be sufferingfrom amentalillnessor intellectualdisability.

Proposedsection3W - Powerof arrestwithout warrantof apersonon hail

Thissectionempowersa constableto arrestwithout warrantapersonwhohascontravened,or is aboutto contravene,aconditionof bail.

Subsection3W(1) providesthat this poweris exercisableeventhoughthebailcondition wasimposedin aStateorTerritoryotherthanthe onein which thepersonis arrested.Personschargedwith offencesagainstCommonwealthlawsaredealtwith in StateCourtsunderStatebail proceduresappliedby Section68of theJudiciaryAct 1903. Subsection3W(1) is necessarybecausethereis noexistingmechanismfor arrestwithout warrantof apersonbailedin anotherjurisdiction. ForseriousCommonwealthoffencesit is notunusualfor aconditionofbail to be that a personnot go to anairportorotherplaceofdeparturefrom Australia. If sucha personis foundat an intemationalairport inanotherStateit is essentialthat police havepowerto preventthepersonleavingAustralia. It is also importantthepoliceareableto preventany interference

15

with witnessesandsimilarconductwhichmayamountto a breachof bailconditions.

Subsection3W(2)providesthat a personarrestedundersubsection(1)mustbetakenbeforea Magistrateassoonaspracticable.Undersubsection3W(3) apersonarrestedin the StateorTerritory in which thebail conditionwasimposedis to bedealtwith underthe relevantappliedStateorTerritory law.

Subsectiong3W(4)and (5) providethatif apersonis broughtbeforeamagistratein a StateorTerritory otherthantheonein which thebail conditionwasimposed,theCourtcanreleasethepersonwithouteffectingtheoriginalbailorderor remandthepersonon bail or in custodypendingarrangementsundertheServiceandExecutionof ProcessAct 1992for theobtainingofa warrantauthorisingthe transferof thepersonto theStateorTerritory in which thebailconditionwasimposed.

ProposedSection3X - Powerof arrestwithout warrantby otherpersons

This sectionreplacestheexistingpowerof arrestwithout warrantforbreachesofthepeaceby anypersonundersection8 of the CrimesAct 1914referredto as‘citizen’s arrest’,which is repealedby clause5.

Subsection3X(l) providesthatapersonwho is not aconstablemay, withoutwarrant,arrestanotherpersonif heor shebelieveson reasonablegroundsthatthe otherpersonis committingorhascommittedanindictableoffenceandthatproceedingsby summonsagainsttheotherpersonwould not achieveoneormoreof thepurposesreferredto in subsection3U(l). This is a more restrictedpowerthanexistsatpresentwherethereisno requirementto be satisfiedthatasummonswould be ineffectivebeforea citizencanarrest.

Subsection3X(2) providesthatacitizenwho arrestsanotherpersonundersubsection(1) must,as soonaspracticableafterthearrest,arrangèfor theperson,andany propertyfoundon thatperson,to be deliveredinto thecustodyofa constable.Thismayinvolve eithertakingthepersonto policeorcallingpolice. This requirementis newandreflectstheviews oftheGibbsReviewandthe current law in theACT.

ProposedSection3Y - Warrantsfor arrest

Thisprovisiondoesnotconferapowerto issuewarrantsof arrest,thesepowersarestill conferredby the StateandTerritory laws appliedby the JudiciaryAct19Q3.. Theseprovisionsmerelyspecifyadditionalprocedureswhichmustbecompliedwith beforeawarrantof arrestcanbe issuedfor aCommonwealthoffence. Theseprocedureswererecommendedby theGibbsReview. Thissectionprovidesthatan issuingofficer mustnot issuea warrantfor thearrestofa personunlessthe informationis on oathandgenerallythe informanthasgiven

16

theofficeran affidavit settingout the reasonswhy thewarrantis soughtincludingthe reasonswhy it is believedthat thepersoncommittedtheoffenceandwhy it is claimedthat proceedingsby summonswould notbe appropriate.Therequirementfor theaffidavit containedin paragraph3Y(l)(b) doesnotapply wherethewarrantis requiredto makeanextraditionrequestof anyforeigncountry.

Any further informationrequestedby the issuingofficerconcerningthe reasonsfor which thewarrantis soughtmustalsobe providedandthe issuingofficermustbe satisfiedthattherearereasonablegroundsfor theissueof thewarrant.The issuingofficermustwrite on theaffidavit whichofthe reasonsspecifiedintheaffidavit andanyotherreasonshehasreliedon to justify the issueof thewarrant.

ProposedSection3Z - Powerto enterpremisesto arrestoffender

Subsection3Z(l) providesthat if a constablehaspowerunderawarrantto arrestapersonandtheconstablebelieveson reasonablegroundsthat thepersonis onanypremiseshe orshemayenterthepremisesusingreasonableforceat anytime, subjectto theconditionsin subsection3Z(3) beingmet,for thepurposeofsearchingfor, andarresting,the person.

Subsection3Z(2)providesthat if a constablehaspowerunderproposedsection3U to arrestapersonwithoutwarrantfor anindictableoffenceandtheconstablebelieveson reasonablegroundsthat thepersonis on any premiseshe orshemayenterthepremisesusing reasonableforceat anytime, againsubjecttosubsection3Z(3) for thepurposeofsearchingfor, andarresting,theperson.Atcommonlaw aconstablehaspowerto enterpremisesto effect anarrestwith orwithout theauthorityof awarrant. Theseprovisionsrestrict that powerinrelationto arrestwithoutwarrantto indictableoffences.

Subsection3Z(3)statesthegeneralrulethatentry to domesticpremisesto effectarrestshouldnotbe conductedatnight. It precludesaconstableenteringadwelling house(asdefined)to arrestapersonbetween9 pmand6 amon thefollowing day unlesstheconstablebelieveson reasonablegroundsthat it wouldnotbe practicableto arrestthepersoneitherat thedwelling houseorelsewhere,at anothertime orbelievesonreasonablegroundsthat it is necessaryto preventtheconcealment,lossordestructionof evidence.

Subsection3Z(4)providesthat “dwelling house”includesavehicle,avesseloran aircraftoraroom in ahotel,motel, boardinghouseorclub in whichpeopleordinarily retire for thenight.

17

ProposedSection3ZA - Useof force in making arrest

Subsection3ZA(1) restatesthe commonlawprinciple that,in making an arrest,apersonmustnot usemoreforce, or subjectthearrestedpersonto greaterindignity, thanis necessaryandreasonableto makethe arrestor preventtheescapeof the arrestedpersonafterthearrest.

Subsection3ZA(2)providesthatwhenarrestinga persona constablemustnotdo anythinglikely to causethedeathof, orgrievousbodily harmto, thepersonunlessthe constablebelieveson reasonablegroundsthat is necessaryto protectlife orpreventseriousinjury to anotherperson,including theconstable.If thepersonis attemptingto escapeby fleeing, theconstablemustnot, asa generalrule,act in a waylikely to causeseriousinjury ordeathunlessthepersonhasbeencalledon to surrenderandtheconstablebelieveson reasonablegroundsthat the personcannotbeapprehendedin anyothermanner.This provisionrestatesthecommonlaw with someof the restrictionsapplicablein theCodeStates(Queensland,WesternAustralia,Tasmania)superimposedin themannerrecommendedby theGibbsReview.

ProposedSection3ZB - Personsto be informedof groundsof arrest

Thesectionprovidesthat acitizen,or constable,who arrestsa personmustinform theperson, atthetime ofarrest,of theoffencefor which thatpersonisbeingarrested.Thisdoesnot requirea technicalstatementofthe termsof theoffencebutmerelyof its substance.This requirementdoesnotapply if thearrestedpersonshould,in thecircumstances,knowthesubstanceof theoffenceor if thearrestedperson’sactionsmakeit impracticable,for examplevigorousresistanceto thearrest.This requirementexistsatcommonlaw.

ProposedSection3ZC - Powerto conductafrisk searchof an arrestedperson

This sectionrestatesthecommonlaw powerof a constableuponorafterarrest,to conducta frisk search(quick runningof thehandsovertheperson’soutergarments)andseizeany ‘seizableitems’ beinganythingthat wouldpresentadangerto a personor thatcould beusedto assista personto escape.Theconstablemustsuspecton reasonablegroundsthat it is prudentto ascertainifthe arrestedpersonis carryinganyseizableitem.

‘Frisk search’and ‘seizableitem’ aredefinedin subsection3C(l) andpursuantto section3Z0 must,if practicable,be conductedby apersonof the samesex.

ProposedSection3ZD - Powerto conductan ordinarysearchof anarrestedperson

This sectionprovidesthat if aconstableupon or afterarrestsuspectsthat thearrestedpersonis carryinganyevidentiarymaterial in relationto an offenceor a

18

seizableitemhe orshemayconductan ‘ordinary search’.This is a powerexercisableasan incidentof arrestat commonlaw.

‘Ordinarysearch’is definedin subsection3C(I) andmeansasearchof aperson,orof articlesin the person’spossession,that mayincluderequiringtheremovalof specifiedouterclothing,gloves,shoesandhatandanexaminationofthoseitems. Wherepracticable,suchasearchmustbeconductedby apersonof thesamesexasthepersonto besearched-section3Z0.

ProposedSection37E - Powerto conductsearchofarrestedperson’spremises

Thissectionprovidesthataconstablewho arrestsapersonat premisesfor anoffence,or who is presentatsuchanarrest,mayseizethingsin plain view atthosepremiseswhichthe constablebelievesto beevidentialmaterialof that,oranotheroffence,oraseizableitem. Whilea thing mustbe in plain view beforeitcanbe seizedthis doesnot preventits movementor manipulationto determinewhetherit is evidentialmaterialor aseizableitem. This poweris morelimitedthanthat availablein the UnitedKingdomunderthe PoliceandCriminalEvidenceAct 1984 in that it precludesa full searchofthepremises.Policewould needto obtaina warrant,at leastby telephone,before thatcouldbe done.

ProposedSection3ZF - Powerto conductan ordinarysearchor a stripsearch

In line with the recommendationsof the GibbsReview,subsection3ZF(l)providesthat if a personwho hasbeenarrestedfor anoffenceis broughtto apolicestation,aconstablemay, if anordinarysearchhasnot alreadybeenconductedatthe time of arSst,conductanordinarysearch,or subjectto thestipulatedconditions,astrip search.

‘Strip search’is definedin subsection3C(1) andmeansa searchof aperson,orof articlesin the person’spossessionandmay includerequiringthe removalofall theperson’sclothesandanexaminationof theperson’sbody andof thegarments.However,this provisiondoesnotconferpowerto takeany bodysamplesorsearchbodycavitiesbutonly to examinethebodysurfaceforthingssuchasbmises,scratchesandidentifyingmarks.

Section3Q makesit clearthatnothingin this Partcanauthoriseasearchof apersonsbody cavities. The lawrelatingto suchsearcheswill beaddressedin aseparateamendmentwhich is beingdevelopedby the StandingCommitteeofAttorneys-General.In the meantimesection3ZV providesthat Part1 AA isnotintendedto limit or excludetheoperationof anotherlaw of the Commonwealth(forexample,section219ZFof the CustomsAct 1901 ), alawofa Territory oralawof a Stateor Territory appliedby the JudiciaryAct 1903.

Subsection3ZF(2) providesthat astrip searchmay beconductedif aconstablesuspectsthat thepersonis in possessionof evidentialmaterialor a seizableitem

19

or that a visual inspectionof theperson’sbody will provideevidenceof theperson’sinvolvementin anoffence. Before the searchmay be conductedtheconstablemustalsosuspectthatit is necessaryto conductastripsearchtorecoverthat item,or discoverthatevidence,andmustobtaintheapprovalofpolice officerof therank of superintendentorhigher.

Subsection3ZF(3)providesthatastrip searchmayalsobeconductedif thearrestedpersonconsentsin writing but this is subjectto paragraphs3ZG(l)(e)and(f) whichprovidethata child under10 mustnot be strip searchedandthat,exceptwherethepersonis arrestedandcharged,acourtorderis requiredwherethechild is a least10 butnot 18 or thepersonis incapableofmanaginghis orheraffairs. In othercasesthe remainingprovisionsmustbecompliedwith.

Subsection3ZP(4)providesthatthe strip searchmaybeconductedin thepresenceofa medicalpractitionerwho may assistin the search.

Subsections3ZF(5) and(6) providethat the approvalfrom the seniorpoliceofficer to conductastrip searchmaybe obtainedby telephoneorby electronicmeansand theofficer whogives, or refuses,suchapprovalmustmakearecordofthedecisionandthereasonsfor it.

Subsections3ZF(7) and(8) providethat suchforce as is necessaryandreasonablein the circumstancesmaybe usedto conducta strip searchandanyitemsofthekind referredto in subsection3ZF(2) foundmaybe seized.

ProposedSection3ZG - Rulesfor conductof strip search

Subsection3ZG(1) sets out theprocedureto befollowed wheneverastrip searchis conductedasanincidentof arrest. A strip searchmustbe conductedinprivateby a constableof thesamesexasthepersonbeingsearchedandmustnotinvolve a searchof theperson’sbody cavities. Exceptin thecaseofa medicalpractitionerora parent,guardianorpersonalrepresentative(wherethe personbeingsearchedhasno objection),astrip searchmustnotbe conductedin thepresence,orview, of amemberof theoppositesexnor in thepresenceofapersonwhosepresenceis notnecessaryfor thepurposesof thesearch.

It alsoprovidesthat a child under10 mustnotbe strip searchedandthat,exceptwherethepersonis arrestedandcharged,acourtorderis requiredwherethechild is a least10 butnot 18 or thepersonis incapableofmanaginghis orheraffairs. This is designedto protecttheinterestsof young peopleandthosewhoareso incapable. Parentalconsentalonemaynotalwaysbe an adequatesafeguard.Additionally, in mostjurisdictionsa child under10 is notcriminallyresponsiblefor anoffence. The proposedModel CriminalCode(Chapter2)recommendsthat 10 shouldbethenationalageof criminalresponsibility.

20

If thepersonbeingsearchedis under18 yearsofageor is incapableofmanaginghis or her affairsthe strip searchmustbeconductedin thepresenceoftheperson’sparent,guardian,oranotherperson(otherthana constable)who iscapableof representingthe interestsof, and is acceptableto, thepersonbeingsearched.A strip searchmustnot involve theremovalof moregarments,orinvolve morevisualinspection,thanis reasonableandnecessaryfor thepurposesofthesearch.

Subsection3ZG(2)requiresthecourtto haveregardto theseriousnessoftheoffence,the ageordisability of theperson,andsuchothermattersasit thinksfitwhendeterminingwhetherayoungpersonor an incapablepersonshouldbethesubjectofastrip search.

Subsection3ZG(3)providesthat a stripsearchmay only be conductedin thepresenceof a medicalpractitionerof the oppositesexto the personbeingsearchedif a medicalpractitionerof thesamesexis notavailablewithin areasonabletime. Subsection3ZG(4)allows aparent,guardianor personalrepresentativeofadifferent sexto bepresentwherethepersonbeingsearchedhasno objection.

Subsection3ZG(5)providesthat if anygarmentsareseizedthe personmustbegiven adequateclothing.

ProposedSection3ZH-Takingfingerprints.recordings.samplesof handwritingorphotographs

The provisionsofStateandTerritory law relatingto identificationmaterialvaryconsiderablyand it is considereddesirableto haveuniformprovisionsapplicableto the investigationof Commonwealthoffences.

Subsection3ZH(1)defines‘identificationmaterial’ for thepurposesofthissectionandproposedsections3ZI and3ZJas printsof hands,fingers,feetortoes,voicerecordings,handwritingsamplesorphotographs(including videorecordings)but excludingtaperecordingsof aperson’sresponsesor confessionsmadeduringthe investigationofCommonwealthoffencesundersections23Uand23VinPartlCoftheCrimesAct1914.

Subsection3ZH(2) providesthata constablemustnot takeidentificationmaterialfrom a personwho is in lawful custodyforan offenceexceptinaccordancewith this section. A constablecannotrequireapersonnot in custodyto submitto the takingof identificationmaterialbutapersonwho is 18 or overandis not incapablecan consentto its taking. This latterprovisionwouldpermit a personto supplysuchmaterialon a voluntarybasis,for example,toeliminatehimselfor herselfas a suspectin apoliceinquiry,or to affordevidencethatthe personis avictim of crime,for example,assault.

21

Subsection3ZH(3) providesthat if a personis in lawful custodyin respectofanoffence,aconstableofthe rank of sergeantorhigherorwho is for thetimebeingin chargeofa police stationmay takeidentificationmaterialfrom thepersonif;

thepersonconsentsin writing (exceptwherethepersonis asuspectwhohasnotbeenarrestedandchargedandis betweentheagesof 10and 18 orwhois incapable,in whichcasesubsection3ZFI(6) applies);or

theconstablebelieveson reasonablegroundsthat it is necessaryto do so inorderto establishtheidentityof the person,or to identify thepersonas thepersonwho committedtheoffence,or to provideevidenceof theoffence;or

the constablesuspectson reasonablegroundsthat thepersonhascommittedanotheroffenceandthematerialis to be takenfor thepurposeofidentifying the personas committing,or to provideevidenceof, the otheroffence.

Subsection3ZH(4) providesthat a constablemayusereasonableforeein thetaking of identificationmaterial.

Subsection3ZH(5) hastheeffect ofprohibitingthe taking of identificationmaterialchildrenundertheageof 10 but this prohibitionis qualifiedbysubsection3ZH(9). Inmostjurisdictionschildrenthatagecannotbe suspectsbecausetheageof criminalresponsibilityis 10. It is necessaryto permitthetaking of identificationmaterialfrom youngchildrenwho arenot suspectswheretheymayhavebeenthevictim of thecrime, for examplein a childabductionit might be necessaryto establishthroughtheuseof fingerprintsthatthechild wasat aparticularplaceat sometime. This is providedfor insubsection3ZH(9).

Subsection3ZH(6) providesthat identificationmaterialcannotbe takenfrom asuspectwho is at least10but under18 or whois incapableandwhohasnotbeenarrestedandchargedunlessthereis acourtorderauthorisingthe taking.This is designedto protectthe interestsof youngpeopleandthosewho areincapable. Parentalconsentalonemaynotalwaysbe an adequatesafeguard.Subsection3ZH(7) requiresthecourt to haveregardto the seriousnessoftheoffence,theageor disabilityof theperson,andsuchothermattersasit thinksfitwhendeterminingwhethera youngor incapablepersonshouldhaveidentificationmaterialtakenfrom them.

Whereidentificationmaterial is takenfrom ayoungor incapablepersonwho isasuspectsubsection3ZH(8) providesit mustbe donein thepresenceof aparent,guardianorpersonalrepresentative.

22

Subsection3ZH(9)allowsthe taking of identificationmaterialfrom achild,aswell asayoungor incapablepersonwho is notasuspectwherethereis consentfrom theparent,guardianorpersonalrepresentative.As mentionedin relationto subsection3Z1-1(5)this is intendedto dealwith the situationwherethechild,youngor incapablepersonis the victim of a crime andthe identificationmaterialis relevantevidence.

ProposedSection3Z1- Destructionof identificationmaterial

Thissectionis intendedto preventthe indefiniteretentionofidentificationmaterialrelatingto personswho havenotbeenconvictedof anoffence.

Unlesscriminal proceedingshavebeeninstitutedwithin 12 months,subsection311(1)requiresthe destructionof identificationmaterialunlessthereis anorderto the contraryby amagistratemadeundersubsection3Z1(3).

Whereproceedingshavecommencedandresultedin eithera finding ofguilt butnoconvictionis recordedundersection19B oftheCrimesAct 1914 oranacquittalwhich is no longerthesubjectof anappealandno retrialhasbeenordered,subsection3Z1(2)requiresthat any identificationmaterialmustalsobedestroyedunlessan investigationinto, orproceedingsfor, anotheroffencetowhichthe identificationmaterialis relevantis pending.

Undersubsection3Z1(3)amagistratecanauthorisepolice to retain identificationmaterialwhichwouldotherwiseneedto bedestroyedif he or sheis satisfiedthatretentionis justifiedby theexistenceofcircumstanceswhich renderapplicationof thegeneralrule inappropriate.It is not intendedthat thethresholdof‘special’ circumstancesbe particularlydifficult to cross. Therewill be manyseriousoffencesagainstCommonwealthlaw whereinvestigationswill beprotractedthroughno faultofpolice. Nor is it intendedthatmaterialbedestroyedbecauseit was takenin relationto oneoffencewhich is notbeingproceededwith or of which thepersonwasacquittedif chargesarependinginrelationto a relatedoffenceor anotheroffence.

ProposedSection371 - Offenceof refusingto allow identificationmaterialto betaken

Thissectionprovidesthatif apersonis convictedof anoffence,thejudgeormagistratepresidingatthe proceedingsmayordereitherthat thepersonattendapolicestation,or that a constablego to the personif in detention,to allow theperson’sfingerprintsor aphotographto betaken. It is an offencefor aperson,without reasonableexcuse,to fail or refuseto allow thosefingerprintsor aphotographto be taken. The maximumpenaltyforan offenceunderthis sectionis 12 monthsimprisonment.Thisprovisionwas recommendedby the GibbsReviewto coversituationswherepolicewould beentitled to retainfingerprintshadtheybeentakenduring the investigation. Thiswould permit the taking of

23

fingerprintsandphotographsin caseswherea personis convictedafterproceedingsinstitutedby summonsandavoidsatemptationto proceedby wayof arrest. This is necessaryfor theidentificationof the personin the eventthatheor shd commitsanotheroffenceat someothertime. Identificationisnecessaryfor investigativepurposesandto ensurethat the personisappropriatelysentencedfor anysubsequentoffence,(that is, prior convictionsareappropriatelytakeninto account).

ProposedSection3ZK - Identificationparades

An identificationparadeis thepreferredmethodof identificationin relationtooffences.A parademustbe heldif the suspectrequestsit andit is reasonableormaybeheldif he or sheconsents.

In somecircumstances,eventhoughasuspectrequestsan identificationparade,it maynot bereasonableto conductone. Forexample,otherevidenceofidentitysuchasfingerprintsor forensicsamplesmay establishidentity beyondreasonabledoubt.Anotherexamplewould be wherethewitnesshasa closerelationshipwith the suspectidentifiedby him or her. In thesecircumstancestheholdingof anidentificationparadewould notbe reasonable.Likewise it maynot bereasonableto requirean identificationparadein the caseof minoroffences.

Subsection3ZK(3)providesthatan identificationparademustnot be heldunlessthesuspectis informedthat:

he or shecanrefuseto takepart in the parade;and

if heor she,withoutreasonableexcuse,refusesto participate,evidenceofthat refusaland ofotheridentificationof thesuspectby a witnessmaybegiven in subsequentproceedingsandthatthe courtor jury maydrawinferencesfrom therefusal,and

alegalrepresentativeor otherpersonmaybe presentduring the parade.

Subsection3ZK(4)providesthat thegiving ofthis informationmustbeeithervideotapedor audiotaped.Subsection3ZK(5) requiresan identificationparadeto be arrangedandconductedfairly soas not to prejudicethe suspect.

Subsection3ZK(6) providesa numberof rulesfor the conductof anidentificationparade. At presenttheserulesare generallysetout in policestandingordersbut themostsignificantaresetout in theBill as recommendedby theGibbsReview. Theserulesare to applywithout limiting the intentofsubsection3ZK(5)andincludethat:

theparadeconsistofatleast9persons;

+ 24

theyresemblethesuspectin age,heightandgeneralappearance;

wherepracticable,no constablewhohasparticipatedin the investigationmay takepart in arranging,orconducting,the identificationparade;the suspectcanselectwherehe or shestandsin the paradeandmaychange

placesaftereachviewingby awitness;

witnessesviewtheparadeseparatelyandnotcommunicatewith eachother;

theparadebe videotaped,or, if this is notpracticable,photographedincolourandall reasonablestepsaretakento recordeverythingsaidanddoneattheparade;

copiesof the videotapeor photographandrecordbe given to thesuspect;

the suspectmayhavealegal representativeor otherpersonof hisor herchoicepresent.

Subsection3ZK(7)providesthat if asuspectrefusesto takepart in anidentificationparadewithout reasonableexcuse,evidenceofthat refusalmaybegivenin anysubsequentproceedingsandthe court,or jury, maydrawsuchinferencesfrom that refusalasappearproper.

Subsection3ZK(8) providesthat if a witnessunderthesupervisionofaconstableis to attemptto identify asuspectotherwisethanduring anidentificationparade,the constablemustensurethat theattemptedidentificationis donein amannerthat is fair to thesuspect.

ProposedSection37L- Identificationby meansof photographs

Subsection3ZL(l) preventsthe useof photographsif asuspectis in custody,oris otherwiseavailableto takepart in an identificationparade,unlessthe suspecthasrefusedto takepart in aparade,or theholdingof aparadewould eitherbeunfairor unreasonable.This reinforcesthe positionof identificationparadesasthepreferredmodeof identification.

Subsection3ZL(2) setsoutanumberof otherproceduralrequirementsfor theuseof photographsto ascertaintheidentityof asuspectwho is in custodyor isotherwiseavailableif an identificationparadeis not to beheld for the reasonssetout in subsection3ZL(l). Theserequirementsincludethenumberandnatureof photographsor picturesto be used,the keepingandprovisionof copiesofrecordsandallowing inspectionof photographsandpicturesby the suspectorhis or her legal representative.If practicablethephotographorpictureof thesuspectincludedin theseriesshouldhavebeentakenor madeafterthe suspect

25

was arrestedor consideredas a suspect.An investigatingconstablewho showsphotographsor picturesto a witnessfor thepurposeof ascertaining,or obtainingevidenceof, the identity of a suspectmustnot actunfairly towardsthesuspector suggestthat aparticularphotographor pictureis that of the suspect.

Subsection3ZL(3) providesthat if aphotographorpictureof asuspectedperson,taken, or made,afterarrestor afterthepersonbecamea suspect,isshownto a witnessandproceedingsin relationto an offencearebroughtbeforeajury andthephotographor pictureis admittedinto evidence,thejury mustbeinformedof the time whenthephotographwastaken. This provision isintendedto overcomethepossibleprejudiceto an accusedpersonwhichmightarisefrom thejury concludingthat,becausepolice werein possessionof aphotographof theaccused,theaccusedwaspreviouslyknownto police.

Subsection3ZL(4) providesthat if asuspectis in custodyan investigatingconstablemustnot useacomposite(identikit) pictureorapictureof a similarkind for the purposeof assistingthewitnessto describethat suspect.

Subsection3ZL(5) providesthat if awitnesshasbeenshownacompositepictureandsubsequentlyasuspectis takeninto custodyfor the offence,theconstableshouldaskthe witnessto attendanidentificationparadeinvolving thesuspectandmakethe necessaryarrangementsif thewitnessis willing to attend.

Subsection3ZL(6) providesthat if after awitnesshasbeenshownacompositepicturea personis subsequentlychargedwith the offence,the constablemust,uponrequest,providethepersoncharged,orhis orherlegal representative,withparticularsof the pictureandanycommentsby thewitnessconcerningthepicture.

Subsection3ZL(7) providesthat if asuspectis in custodyandan investigatingconstablewishesto investigatethepossibility thatanotherperson committedthe offence,subsection3ZL(4) doesnot preventa constableshowingawitnessacompositepictureforthe purposeof assistingawitnessto describeapersonotherthanthesuspect.

ProposedSection3ZM - Identificationprocedureswherethereis morethanonesuspect

This sectiondealswith thesituationwherepolicewish to usephotographsor toconductanidentificationparadeto ascertaineitherwhich of severalsuspectscommittedan offenceor to establishthe identitiesof severalsuspectswho mayhavejointly committedan offence. In bothcasesthe sectionrequiresthat aseparateidentificationprocessbeundertakenforeachsuspect.Thiswouldpreventmorethanonesuspectbeingplacedin oneidentificationparadeor aphotographof morethanonesuspectbeingplacedamonga particularseriesofphotographsbeingshownto a witness.

26

ProposedSection3ZN - Descriptions

Subsection3ZN(I) requiresadescriptionofa suspectgiven to a constableto berecordedandretaineduntil anyproceedingsarecompleted.

Subsection3ZN(2) providesthatasageneralruleaconstablemust,on request,providea personchargedwith anoffencewith:

thenameof everypersonwho is knownto claimto haveseenapersonwhois suspectedofbeinginvolvedin theoffence;and

anyknowndescription of apersonsuspectedofbeinginvolved in itscommission.

Subsection3ZN(3) providesthat if theconstablesuspectson reasonablegroundsthatproviding thenameofapersoncouldplacetheperson in dangeror exposethepersonto harassmentorunreasonableinterference,anydescriptionofthesuspectmay beprovidedwithout identifying thepersonwhoprovidedthedescription.

Division5 - General

ProposedSection3Z0 - Rulesfor conductofordinaryandfrisk searches

Bothordinaryandfrisk searchesmustalso,if practicable,be conductedby apersonof the samesexas the personbeingsearched.

ProposedSection3ZP - Announcementbeforeentry

This requirementwasnotaddressedby theGibbsReviewbut is basedon therecommendationsof JudgeStauntonfollowing theBrennaninquiry andtheinquiry into theGundycaseby the RoyalCommissioninto AboriginalDeathsinCustody. Section3ZPprovidesthatbeforeanypersonenterspremisesunderasearchwarrantor for the purposesof arrestinga person,theexecutingofficer orconstableassistingmustannouncethathe orsheis authorisedto enterandgiveanypersonat the premisesanopportunityto allow entryto thepremisesunlesstherearereasonablegroundsto believethat immediateentry to thepremisesisrequiredto ensurethe safetyof apersonor thatthe effectiveexecutionof thesearchwarrantor the arrestis not frustrated.

ProposedSection37Q- Offencefor making falsestatementsin warrants

Thissectioncreatesanoffenceofknowingly makinga falseormisleadingstatementin anapplicationfor awarrantunderthisPart. Themaximumpenaltyfor anoffenceunderthis sectionis imprisonmentfor 2 years.

27

ProposedSection3ZR - Offencesrelatingto telephonewarrants

This sectioncreatesoffencesarisingfrom thepreparation,andexecution,of aform of warrantobtainedby telephoneorotherelectronicmeansundersection3?. It is anoffenceforapersonto nameapersonin aform of warrant as theissuingofficer unlessthatofficer issuedthewarrant,or to knowingly statein awarrantsomethingmateriallydifferent from that authorisedby the issuingofficer. It is alsoanoffenceto purport to executeanunauthorisedor falseformof warrantor to give anissuingofficer aform of warrantthat is not the form thatthe personpurportedto execute.Offencesunderthissectionarepunishablebyimprisonmentfor up to 2 years. Theseoffencesareintendedto preventabusesof telephonesearchwarrantsby policeandwererecommendedby theGibbsReview.

ProposedSection3ZS - Retentionof thingswhich areseized

Subsection3ZS(l)providesthatsubjectto a contraryorderof the court,wherethingsareseizedunderthisParttheymustbereturnedif the reasonfortheirseizureceasesto existor it is decidedthat theseizeditemsarenot to beusedinevidence.Additionally, if a constableseizesa thing in anemergencysituationunderproposedsection3R, the constablemustreturn it whenthe reasonfor itsseizureno longerexistsor it is decidedthatit is not to beusedin evidenceor 60dayshaveelapsedsinceseizure,whicheveroccursfirst. This reflectsthefactthat seizurein thesecircumstancesis notjudicially sanctionedandfollowssectionlOD of the CrimesAct 1914 which is to be repealed.

Theexceptionsto this arewherethe thing is forfeitable(for example,drugs),thereis adisputeasto the ownershipofthe thing, orproceedingsin respectofwhich it mayafford evidencehavebeeninstitutedor its retentionis specificallyauthorisedby law or a courtorder.

Subsection3ZS(2)providesthat, subjectto certainexceptions,wheregoodshavebeenseizedby way ofemergencysearch,theymustbe returnedafter60days. Theexceptionsare,in addition to thosesetout in subsection3ZS(1),arethat relevantproceedingshavebeeninstitutedandarenot concluded,a court hasorderedto thecontrarypursuantto section3ZTor thereareotherlawful groundsto retain,destroyor disposeof the things.

ProposedSection3ZT- Courtof summaryjurisdictionmay permit a thing to beretained

Beforethe endof60 daysafteremergencyseizureundersection3R orbeforetheendof aperiodpreviouslyspecifiedin anorderof acourt, if proceedingsin

which the thing maybeevidencehavenot commenced,theconstablemayapplyfortn orderto retain theitem forafurtherperiod. The courtmayrequirenoticeof the applicationto begiven to anypersonit thinks fit.

28

Thecourtmayorderretentionif it is satisfiedthat it is necessaryforaninvestigationor prosecution.

ProposedSectionIZIJ - Law relatingto legalprofessionalprivilegenot affected

This sectionputs it beyonddoubtthat this Partdoesnot in anyway affect thelawrelatingto legal professionalprivilege. Underthat lawat present,documentswhicharesubjectto legal professionalprivilege cannotbe seized.GuidelineshavebeenestablishedbetweenlegalprofessionalbodiesandtheAustralianFederalPolicefor theexecutionof searchwarrantson solicitors’ andLaw Societypremiseswhichpreventpolicefrom inspectingdocumentsforwhichprivilege is claimeduntil the validity oftheclaim hasbeendetermined.

ProposedSection‘WV - Lawsrelating to taking forensicsamplesnotaffected

Thissectionprovidesthat nothingin theBill is intendedto limit, orexclude,anotherlaw of theCommonwealthorofa Territory, ora law of a StateorTerritory appliedby section68 of theJudiciaryAct 1903 relatingto thetakingof forensicsamples.This ensuresthatdespitesomereferencesin the Bill to thetaking of forensicsamples(including takingof identificationmaterialasdefinedin proposedsection3ZH) policeinvestigatingCommonwealthoffenceswill beableto avail themselvesof anyotherrelevantlaws (forexample,section219ZFof theCustomsAct 19011. TheGibbsReviewmaderecommendationsconcemingthetaking of body samples,but it was decidedto deferimplementingthat aspectof the Reviewat thisstagependingagreementat theStandingCommitteeof Auomeys-Generalon agreeduniform proceduresin alljurisdictions.

Clause5 - Repeals

Thisclauserepealsthe existingsectionsof theCrimesAct 1914relatingtoarrest,searchwarrantsfor generaloffencesandsearchwarrantsin casesofsuspectedespionage.Section48Bdealingwith thearrestwithout warrantofpersonsunlawfully at largeis repealedandreplacedby proposedsection3V.Sections1OA and108 dealingwith searcheswithout warrantin emergencysituationsarealsorepealedandarere-enactedas sections3Rand3S. TheGibbsReviewrecommendedthe repealof section82 on thebasisthat thereis onlyjustificationfor asingle searchwarrantprocedurein theCrimesAct 1914.

Clause6 - Amendmentsof otherActs

Thisclauseamendsthe Acts setout in the Scheduleto the Bill. The Scheduletothe CommonwealthPlaces(Applicationof Laws) Act 1970andparagraph5(4)(a)of theCrimesat SeaAct 1979 areamendedto substitutea referenceto

29

proposedPartI AA (otherthan section3X) for referencesto sections8A and 10of the CrimesAct 1914 whicharerepealedby ClauseSof thisBill.

Undertheformer two Acts,wherearrangementsexistwith the States,section8A (arrestwithoutwarrantby aconstable)andsection10 (searchwarrants)donotapply to mattersarisingunderthosetwo Acts. This is only ofpracticalrelevanceto the CommonwealthPlaces(Applicationof Laws)Act 1970 as thereareno arrangementsunderthe Crimesat SeaAct 1979. The proposedamendmentswill preservethissituationfor thenewarrestandsearchwarrantpowerscontainedin the B ill.

Theclausealsoamendsan draftingerrorin a previousamendmentto thoseActsby removinganunnecessaryreferenceto sectionI6BA of the CrimesAct 1914in eachAct. SectionI6BA falls within “the provisionsof Divisions I to 9(inclusive) of theCrimesAct 1914” whicharealreadyexcludedfromapplicationby the relevantprovision in eachAct. Furthermore,the clausealsoamendsthedefinition of “externalsearch”containedin section4 of theCustomsAct 1901 to enableitems in thepossessionof aperson,suchasbaggage,to besearched.This will makethe definition of “externalsearch”intheCustomsAct moreconsistentwith the definitionof ‘ordinarysearch’underproposedsubsection3C(1)of this Bill.

Producedby the Australian Government Publishing Service

flI~H~IiIll 1111~Iff~~11 I~9 780644 308L25