It is not unusual for legislation defining an offence to be changed, and a question may arise as to whether the change creates a new offence, or whether the original offence (the predecessor offence) was merely reformulated, refined or improved.
This was the issue in Xerri v The King [2024] HCA 5, as stated by Gageler CJ and Jagot J at [14], and by Gordon, Steward and Gleeson JJ at [41]. If the change did not create a new offence but, inter alia, increased the maximum penalty, an offender would have the benefit of the lesser penalty if the offending occurred before the change (this rule is embodied in the legislation referred to at [7] and [41]).
Whether a change is so radical as to create a new offence can be a difficult question, the answer only seeming simple once it has been decided in a court of final appeal. Here, it seems that after the hearing of the appeal in the High Court the Crown (the ultimate winner) was not confident of victory, and it was given leave to file supplementary submissions [37], [68]. These did not need to be addressed.
In comparing the old with the new versions it is necessary to focus on the substance, rather than the form, of the provisions [15]. Here, Gageler CJ and Jagot J listed six substantial differences between the provisions ([16]-[21]), and Gordon, Steward and Gleeson JJ listed eight ([60]). The Court was unanimous in deciding that a new offence had been created, that the increased maximum penalty applied, and the appeal was dismissed.
The reasons for the change in legislation assisted in explaining why this was a new offence. References to a report by a Royal Commission, and to explanations in the Second Reading debate provided useful context.
Several problems were addressed by the new provisions. For example - and all this was about sexual offending by adults against children - it could be difficult for complainants to say precisely when alleged offending occurred, juries might not agree that all of several allegations were proved, historical sentencing patterns might now seem inappropriately lenient, and defendants should not benefit from their own delaying tactics in progressing cases to trial. Accordingly, the new law requires proof of an unlawful sexual relationship, and a jury need not be unanimous about which alleged incidents occurred when deciding whether there had been such a relationship. The new maximum penalty applies, whether the relationship occurred before, during or after the commencement of the new legislation.
