Guilty pleas, disclosure and assistance

[9-100] Summary of relevant considerations

Last reviewed: February 2026
Note:

unless otherwise specified, references to sections in this chapter are to the Crimes (Sentencing Procedure) Act 1999.

[9-110] Guilty pleas

Last reviewed: February 2026

There are two distinct guilty plea discount schemes provided for in the Crimes (Sentencing Procedure) Act 1999:

1. 

A mandatory sentencing discount scheme contained in Pt 3, Div 1A (s 25D), which applies to an offence dealt with on indictment (which commenced on 30 April 2018): see [9-140].

2. 

Section 22, which concerns offences dealt with summarily, or on indictment to which Pt 3, Div 1A does not apply: see [9-150].

A guilty plea is a factor to be taken into account in mitigation of a sentence under s 21A(3)(k). An offer to plead guilty to a different offence, where the offer is not accepted and the offender is subsequently found guilty of that offence, or a reasonably equivalent offence, is a mitigating factor under s 21A(3)(n). See Mitigating factors under s 21A(3) at [11-000].

[9-120] Impermissible to penalise offender for pleading not guilty

Last reviewed: February 2026

A court is not permitted to penalise an offender for pleading not guilty. In Siganto v The Queen at [22], the High Court (as constituted above) said:

A person charged with a criminal offence is entitled to plead not guilty, and defend himself or herself, without thereby attracting the risk of the imposition of a penalty more serious than would otherwise have been imposed.

The court punishes an offender for the crime, not for the defence: [30], affirming the proposition expressed in DA Thomas, Principles of Sentencing (2nd ed), 1979, Heinemann, London, p 50. The High Court in Siganto v The Queen at [21] also affirmed the following passage from R v Gray [1977] VR 225 at 231:

It is impermissible to increase what is a proper sentence for the offence committed, in order to mark the court’s disapproval of the accused’s having put the issues to proof or having presented a time-wasting or even scurrilous defence.

See also Cameron v The Queen (2002) 209 CLR 339 at [11]–[12].

[9-130] Obligations of the court taking the plea

Last reviewed: February 2026

For a discussion of:

  • the procedure in proceedings dealt with on indictment, see Criminal Trial Courts Bench Book in Arraignment at [1-005] Pre-trial procedures;

  • the procedure in summary proceedings, see Local Court Bench Book at [4-030]; and

  • the Local Court committal procedure, see Local Court Bench Book at [28-160].

[9-140] Guilty plea discounts for offences dealt with on indictment

Last reviewed: February 2026

Part 3, Div 1A of the Crimes (Sentencing Procedure) Act 1999 provides for a scheme of fixed sentencing discounts for the utilitarian value of a guilty plea for offences dealt with on indictment (see exceptions below). The purpose of its insertion was “largely to remove judicial discretion as to the amount of the discount and to reinforce certainty based on the timing of the entry of a guilty plea”: Rokovada v R [2025] NSWCCA 64 at [43]; see Second Reading Speech.

The scheme does not apply to:

  • Commonwealth offences: s 25A(1)(a); see Plea of guilty: s 16A(2)(g) in [16-025]

  • offences committed by persons under 18 years at the time of the offence if they were under 21 years when the relevant proceedings commenced: s 25A(1)(b)

  • a sentence of life imprisonment: s 25F(9)

  • offences dealt with summarily or an offence dealt with on indictment to which Pt 3, Div 1A does not apply: s 22(5); see [9-150] below.

An offender bears the onus of proving, on the balance of probabilities, that there are grounds for the sentencing discount: s 25F(5).

The court must indicate how the sentence imposed was calculated where a discount is applied, or give reasons for reducing or refusing to apply the discount: s 25F(7). While failure to comply with Pt 3, Div 1A does not invalidate the sentence (s 25F(8)), it may amount to error: Tsoumbanellis v R [2025] NSWCCA 107 at [29], [52]. The “general rule” is the absence of any reference to a plea will result in an inference that it was not given any weight: [30]–[32]; R v Thomson; Houlton [2000] NSWCCA 309 at [52]–[53]. However, there are some cases where other factors infer the plea was taken into account: [32]; Borri v R [2023] NSWCCA 166 at [36]–[45]; see the discussion in Transparency at [9-150].

Mandatory discounts — offences dealt with on indictment etc

Section 25D establishes inflexible temporal limits governing the degree of discount available at specified procedural intervals in the committal and trial process, and imposes graduated discounts based on the timing of the entry or indication of a guilty plea: Gurin v R [2022] NSWCCA 193 at [24], [26].

Section 25D(1) requires a court to apply a discount for the utilitarian value of a guilty plea, in accordance with the balance of the section, if the offender pleaded guilty before being sentenced. It is clear from the language of s 25D(1) that such discounts are made solely “for the utilitarian value of a guilty plea”: Doyle v R [2022] NSWCCA 81 at [18]. Remorse (s 21A(3)(i)) and/or a willingness to facilitate the administration of justice (s 22A) are conceptually distinct and must be considered separately: Doyle v R at [16]–[19].

Section 25D(2) prescribes the following mandatory discounts for the utilitarian value of a guilty plea:

  • 25%, if the guilty plea was accepted in committal proceedings: s 25D(2)(a)

  • 10%, if the offender pleaded guilty at least 14 days before “the first day of trial of an offender”, or at the first available opportunity after complying with the pre-trial notice requirements: s 25D(2)(b)

  • 5%, in any other case: s 25D(2)(c).

A mandatory discount in s 25D must not be rounded up or down to an even number of months: Sampson v R [2025] NSWCCA 25 at [43], [49].

Note:

the sentencing calculator on JIRS assists with calculating sentences of imprisonment, including in relation to the deduction of any discount to the day.

Regarding s 25D(2)(a), offenders will only be entitled to a 25% discount if the plea is actually entered in the Local Court: Rokovada v R at [43]. In that case, the Court held the sentencing judge was correct to allow a 10% discount where the Crown accepted a plea offer at a District Court “super call-over” which had previously been made by the offender, and rejected by the Crown, in the Local Court: [44]; [50]; [64].

Regarding, s 25D(2)(b), the “first day of the trial of an offender” is defined in s 25C(1) as:

the first day fixed for the trial of the offender or, if that day is vacated, the next day fixed for the trial that is not vacated.

The word “vacated” means adjourned before the trial commenced: Gurin v R at [27], [29]. The adjournment resets the clock, providing the offender with another opportunity to enter a guilty plea 14 days before the next day fixed for trial, but once the trial commences the opportunity for a 10% discount is lost: [29].

The 5% discount under s 25D(2)(c) applies if a plea of guilty is entered less than 14 days before the first day of trial including, for example, after a complainant has given evidence in the trial: DS v R [2025] NSWCCA 53 at [61]–[63].

Discounts for ex officio charges and new count offences — offences dealt with on indictment etc

The mandatory discount scheme also applies to an offence the subject of an ex officio indictment or a count for a new offence added to an existing indictment: s 25D(3). A 25% discount is prescribed where the offender pleads guilty as soon as practicable after the ex officio indictment is filed or the indictment is amended to include the new count: s 25D(3)(a), (a1). However, the offender is not entitled to the 25% discount if:

  • the facts or evidence establishing the elements of the new offence are substantially the same as those of the offence in the original indictment (and the penalty is the same or less), or

  • the offender previously refused an offer to plead guilty to the new offence made by the prosecutor and it was recorded in a negotiations document (defined in s 25B): s 25D(4).

Section 25D(4) forecloses the availability of large sentencing discounts when there are earlier opportunities for both parties to offer and negotiate a guilty plea. It would otherwise be inimical to the principle objective of the early appropriate guilty plea scheme to allow for the maximum discount to be available: R v Doudar [2020] NSWSC 1262 at [63]. “Substantially the same” in s 25D(4)(a) should be given its natural and ordinary meaning: [64]. In R v Doudar, the sentencing judge rejected a submission that a 25% discount should be given and concluded a 10% discount for a guilty plea to accessory after the fact for murder was appropriate, because that offence occurred within substantially the same factual and evidentiary matrix as the original murder charge for which the offender had been committed for trial: [63], [65], [67].

Discounts when offender is found fit to be tried — offences dealt with on indictment etc

The scheme also applies to an offender who pleads guilty after being found fit to be tried where the matter was not remitted to a magistrate for further committal proceedings: s 25D(5). A 25% discount is only available if the offender pleads guilty as soon as practicable after being found fit to be tried: s 25D(5)(a).

In determining whether a plea was entered as soon as practicable, the court is to take into account whether the offender had a reasonable opportunity to obtain legal advice and give instructions to a legal representative: s 25D(6). In Stubbings v R [2023] NSWCCA 69, the Court held that this evaluative assessment is made from the offender’s point of view, taking into account the time period which, viewed objectively, is appropriate or suitable in the circumstances of the particular case to obtain legal advice and give instructions: [51].

Discounts when plea offer to different offences refused when made — offences dealt with on indictment etc

Section 25E provides for discounts where a guilty plea offer is made for a different offence but refused. The relevant discounts are set out in s 25E(3) and are available if the offender’s offer to plead guilty to a different offence was recorded in a negotiations document, was for an offence that was not “the subject of the proceedings”, was not accepted by the prosecutor, and:

  • the offender was subsequently found guilty of the different offence or a reasonably equivalent offence (s 25E(1)), or

  • was accepted by the prosecutor after committal and the offender pleaded guilty to the different offence at the first available opportunity able to be obtained by the offender (s 25E(2)).

The discounts prescribed in s 25E(3) are intended to operate as incentives to offenders to offer realistic pleas of guilty: Black v R [2022] NSWCCA 17 at [41].

A “negotiations document” is defined in s 25B to include a case conference certificate. In Ke v R [2021] NSWCCA 177, the Court concluded it was unfair the applicant’s sentence was discounted by 10%, and not 25%, following her guilty plea in the District Court to an offence of recklessly deal with proceeds of crime. She had offered to plead guilty to that offence before being committed for trial, but it had been rejected, and the offer was not recorded in the case conference certificate filed on committal as required by s 75 Criminal Procedure Act 1986. Justice Bellew (Adamson J agreeing; see also Brereton JA at [63] to similar effect) held that the phrase “an offer recorded in a negotiations document” in s 25E(2)(a) should be construed as meaning “an offer which was recorded or which was required to be recorded in a negotiations document” (emphasis added): [339]. His Honour said, at [338], that accepting any other interpretation would:

…bring about a result which … could not possibly have been intended by the Parliament when enacting the scheme. Specifically … it could not possibly have been the Parliament’s intention, in enacting s 25E, to bring about a result whereby an offender was deprived of the benefit of a significant discount on [their] sentence as the result of both parties to the proceedings simply overlooking a requirement to record the undisputed fact of a previous offer to plead guilty. That is particularly so in circumstances where the clear intention of the Parliament, reflected in s 75(1)(b), was that any offer to plead guilty to (inter alia) a different offence be recorded in the case conference certificate.

The phrase “the offence the subject of the proceedings” in s 25E(1)(b), (2)(b) was considered in Black v R. The Court concluded it was clear only one offence, the principal offence, was intended to be the subject of the proceedings, and it was irrelevant that, for the purposes of the charge certificate, multiple offences may be “the subject of the proceedings”: [30]–[36]. Denying a discount to an offender who had offered a realistic guilty plea to an alternative charge, merely because it was specified in either the charge certificate or case conference certificate, undermines the purpose for which the reduction was prescribed, and was potentially unfair: [41].

Not allowing or reducing the discount — offences dealt with on indictment etc

Despite the mandatory terms of s 25D(1), s 25F provides the court can refuse to give a discount or a reduced discount if:

  • the offender’s culpability is so extreme the community interest in retribution, punishment, community protection and deterrence warrants no, or a reduced, discount: s 25F(2), or

  • the utilitarian value of the plea was eroded by a factual dispute which was not determined in the offender’s favour: s 25F(4).

If a case conference certificate was filed, the prosecutor cannot submit that no discount should be given unless the defence was notified of the prosecution’s intention to do so either at or before the conference: s 25F(3).

[9-150] Guilty plea discounts for offences dealt with summarily and exceptions to Pt 3 Div 1A

Last reviewed: February 2026

Section 22 provides the way a guilty plea is to be taken into account for an offence dealt with summarily or “an offence dealt with on indictment to which Div 1A [discussed above] does not apply”: s 22(5). This includes the following, to which Pt 3, Div 1A (discussed at [9-140]) does not apply:

  • offences committed by persons under 18 years at the time of the offence if they were under 21 years when the relevant proceedings commenced: s 25A(1)(b)

  • a sentence of life imprisonment: s 25F(9).

For commentary regarding taking into account a guilty plea for a Commonwealth offence, to with Pt 3, Div 1A also does not apply unless the regulations otherwise provide (s 25A(1)(a)), see Plea of guilty: s 16A(2)(g) in [16-025].

Section 22(1) provides a court may impose a lesser penalty after considering:

(a) 

the fact of the guilty plea,

(b) 

the timing of the plea or indication of an intention to plead, and

(c) 

the circumstances in which the offender indicated an intention to plead guilty.

Section 22(1A), which reflects the common law, provides that the lesser penalty imposed must not be unreasonably disproportionate to the nature and circumstances of the offence.

Guideline for guilty plea discount – offences dealt with summarily etc

In R v Thomson and Houlton (2000) 49 NSWLR 383 Spigelman CJ (Wood CJ at CL, Foster AJA, Grove and James JJ agreeing) set out the following guideline at [160]:

(i) 

A sentencing judge should explicitly state that a plea of guilty has been taken into account. Failure to do so will generally be taken to indicate that the plea was not given weight.

(ii) 

Sentencing judges are encouraged to quantify the effect of the plea on the sentence insofar as they believe it appropriate to do so. This effect can encompass any or all of the matters to which the plea may be relevant — contrition, witness vulnerability and utilitarian value — but particular encouragement is given to the quantification of the last mentioned matter. Where other matters are regarded as appropriate to be quantified in a particular case, e.g. assistance to authorities, a single combined quantification will often be appropriate.

(iii) 

The utilitarian value of a plea to the criminal justice system should generally be assessed in the range of 10–25 per cent discount on sentence. The primary consideration determining where in the range a particular case should fall, is the timing of the plea. What is to be regarded as an early plea will vary according to the circumstances of the case and is a matter for determination by the sentencing judge.

[Note: The top of the range would be expected to be restricted to pleas at the earliest possible opportunity and should not be given, save in an exceptional case, after a matter has been set down for trial. A discount towards the bottom of the range is appropriate for late pleas, for example, those entered on the date fixed for trial, unless there are particular benefits arising from the prospective length and complexity of the trial: [155]. The complexity of the issues about which evidence will have to be gathered and adduced will affect the value of the plea. The greater the difficulty of assembling the relevant evidence and the greater the length and complexity of the trial, the greater the utilitarian value of a plea: [154]. Rare cases involving exceptional complexity and trial duration may justify a higher discount: [156]. A discount within the range specified will not mean that a trial judge’s exercise of discretion cannot be subject to appellate review: [158].]

(iv) 

In some cases the plea, in combination with other relevant factors, will change the nature of the sentence imposed. In some cases a plea will not lead to any discount.

[Note: There are circumstances in which the protection of the public requires a long sentence to be imposed such that no discount for the plea is appropriate: [157].]

The range of discount referred to in R v Thomson and Houlton is a guideline only; it creates no presumption or entitlement to a particular discount in any given situation: R v Scott [2003] NSWCCA 286 at [28]; cited in Sahyoun v R [2020] NSWCCA 87 at [54] (and the cases cited there).

Where a plea reflects a “recognition of the inevitable”, it may qualify the extent of genuine contrition, but not the utilitarian value of the guilty plea: Facenfield v R [2021] NSWCCA 128 at [41]; R v Thomson and Houlton at [136].

The R v Borkowski principles — offences dealt with summarily etc

In R v Borkowski [2009] NSWCCA 102, Howie J (McClellan CJ at CL and Simpson J agreeing) at [32] summarised the following “principles of general application” when a sentence is discounted for a guilty plea:

1. 

The discount for the utilitarian value of the pleas will be determined largely by the timing of the plea so that the earlier the plea the greater discount: Thomson at [154]; Forbes [2005] NSWCCA 377 at [116].

2. 

Some allowance may be made in determining the discount where the trial would be particularly complicated or lengthy: Thomson at [154].

3. 

The utilitarian discount does not reflect any other consideration arising from the plea, such as saving witnesses from giving evidence but this is relevant to remorse: Thomson at [119] to [123]; nor is it affected by post-offending conduct: Perry [2006] NSWCCA 351.

4. 

The utilitarian discount does not take into account the strength of the prosecution case: Sutton [2004] NSWCCA 225.

5. 

There is to be no component in the discount for remorse nor is there to be a separate quantified discount for remorse: MAK and MSK [2006] NSWCCA 381; Kite [2009] NSWCCA 12 or for the “Ellis discount”; Lewins [2007] NSWCCA 189; S [2008] NSWCCA 186 [Note: Principle 5 no longer applies: see below].

6. 

Where there are multiple offences and pleas at different times, the utilitarian value of the plea should be separately considered for each offence: SY [2003] NSWCCA 291.

7. 

There may be offences that are so serious that no discount should be given: Thomson at [158]; Kalache [2000] NSWCCA 2; where the protection of the public requires a longer sentence: El-Andouri [2004] NSWCCA 178.

8. 

Generally the reason for the delay in the plea is irrelevant because, if it is not forthcoming, the utilitarian value is reduced: Stambolis [2006] NSWCCA 56; Giac [2008] NSWCCA 280.

9. 

The utilitarian value of a delayed plea is less and consequently the discount is reduced even where there has been a plea bargain: Dib [2003] NSWCCA 117; Ahmad [2006] NSWCCA 177; or where the offender is waiting to see what charges are ultimately brought by the Crown: Sullivan and Skillin [2009] (sic [2008]) NSWCCA 296; or the offender has delayed the plea to obtain some forensic advantage: Stambolis [2006] NSWCCA 56; Saad [2007] NSWCCA 98, such as having matters put on a Form 1: Chiekh and Hoete (sic Cheikh) [2004] NSWCCA 448.

10. 

An offer of a plea that is rejected by the Crown but is consistent with a jury verdict after trial can result in a discount even though there is no utilitarian value: Oinonen [1999] NSWCCA 310; Johnson [2003] NSWCCA 129.

11. 

The discount can result in a different type of sentence but the resulting sentence should not again be reduced by reason of the discount: Lo [2003] NSWCCA 313.

12. 

The amount of the discount does not depend upon the administrative arrangements or any practice in a particular court or by a particular judge for the management of trials or otherwise.

Applying the principles — offences dealt with summarily etc

Chief Justice Bathurst in R v AB [2011] NSWCCA 229 at [3] (agreeing with Johnson J; Hoeben J also agreeing), said courts should “... generally continue to follow the approach in R v Borkowski … but…the principles have to be applied by reference to the particular circumstances in any case”. In that case, the Court described the offender as being given a “generous” 25% discount for a guilty plea entered in the Local Court following a significant dispute on sentence which was resolved against him: [24]. The Court observed the discount for a plea is not fixed and may be eroded as a result of the manner in which the sentence proceedings are conducted: [2]; [33].

In relation to principle 5 in R v Borkowski, any Ellis discount must be numerically quantified: Panetta v R [2016] NSWCCA 85 at [36]–[37]. See Voluntary disclosure of unknown guilt at [9-240].

As to principle 6, when an aggregate sentence is imposed a separate discount must be applied to each indicative sentence: Bao v R [2016] NSWCCA 16 at [41], [44]; see also Cumulative and aggregate sentences in [9-270] Applying the discount.

As to principle 7, a discount for the guilty plea was withheld in Milat v R [2014] NSWCCA 29 on the basis of the extreme circumstances of the murder: [92]. The offender relied on the plurality in R v El-​Andouri [2004] NSWCCA 178 at [34], which purported to confine the circumstances in which a plea will not warrant any discount to cases where the protection of the public requires a long sentence, or for which the maximum sentence is appropriate notwithstanding the plea. However, the Court held this statement is merely a gloss on the guideline judgment in R v Thomson and Houlton and has the potential to misrepresent what the Chief Justice actually said: [81], [83]. Chief Justice Spigelman did not define a closed category of cases but merely acknowledged there will be cases where the discount is withheld: [84]. This may also include cases where the sentence imposed is less than the statutory maximum: [75]–[76], [80].

Principles 8 and 9 in R v Borkowski generally apply subject to Bathurst CJ’s statement in R v AB at [3] that, the principles have to applied by reference to the circumstances of the case. Accordingly, there have been cases where the reasons for the delay in a plea have been taken into account. See for example:

  • Shine v R [2016] NSWCCA 149, in which the offender at no time denied committing the offence but awaited the outcome of a psychiatric evaluation before entering a plea: [95]. A similar situation occurred in Haines v R [2016] NSWCCA 90. In both cases, a utilitarian discount of 25% was warranted in the circumstances notwithstanding the timing of the plea: Shine v R at [95]; [110]–[114]; Haines v R at [32]–[33].

  • Atkinson v R [2014] NSWCCA 262, where the Court took into account that the delay in the plea was as a result of the offender reasonably believing his lawyers had already entered pleas in the Local Court: [18]–[20]; [68]; [88].

Ultimately, the whole history of the matter can be considered in assessing the utilitarian value of the plea: Samuel v R [2017] NSWCCA 239 at [60]. In Samuel v R, the 8-year delay between the offender absconding (after being charged) and his guilty plea in the Local Court, meant his plea could not be characterised as “early”. The delay caused unnecessary expenditure of resources and a loss of efficiency for the criminal justice system: [57]–[59].

Transparency — offences dealt with summarily etc

The guideline encourages transparency in decision-making and favours expressly quantifying the discount (often expressed as a percentage reduction in the otherwise appropriate sentence) when the court takes a guilty plea into account in sentencing: R v Thomson and Houlton (2000) 49 NSWLR 383.

In R v Lawrence [2005] NSWCCA 91, Spigelman CJ (Grove and Bell JJ agreeing) said at [15] that the reason for issuing the guideline:

included the need to ensure that participants in the New South Wales criminal justice system had no reason to be sceptical about whether or not the benefits of a guilty plea were in fact made available to accused.

Cited in Wong v R [2018] NSWCCA 263 at [43]; Murray v R [2017] NSWCCA 262; Edwards v R [2017] NSWCCA 160; amongst other decisions).

Although quantification of the discount is preferable, a failure to do so does not by itself establish error: R v Simpson (2001) 53 NSWLR 704 at [82]–[83]; R v DF [2005] NSWCCA 259 at [15]; R v Henare [2005] NSWCCA 366 at [26].

Whether a failure to explicitly state that a guilty plea has been taken into account indicates it was not given weight depends on the circumstances of the particular case and the content of the reasons: Woodward v R [2014] NSWCCA 205 at [6]; cited in Zhang v R [2018] NSWCCA 82 at [51]. Where there is a real possibility the plea was not properly considered, failure to refer to the issue in the judgment should be treated as a material error: Lee v R [2016] NSWCCA 146 at [37].

See also Zhang v R [2018] NSWCCA 82 at [51 and Borri v R [2023] NSWCCA 166 at [36]–[45].

Willingness to facilitate the course of justice — offences dealt with summarily etc

In R v Sharma (2002) 54 NSWLR 300 (five-judge bench), the Court held a proper construction of s 22 requires the court to take into account the objective utilitarian value of the plea, even if there is no subjective intention to facilitate the administration of justice: [62]. The Court said, however, viewed objectively, there will always be actual, as distinct from intended, facilitation of the administration of justice by reason of “the fact” of the plea. The use of the word “must” and the reference to “the fact” of the plea in s 22, strongly suggest Parliament was not concerned only with subjective elements, but the actual facilitation of the administration of justice: [52]. The Court was responding to the High Court majority’s decision in Cameron v The Queen (2002) 209 CLR 339 that s 22A was a subjective test, and the Court indicated it was not applicable in NSW: [67]–[68].

Therefore, a court must take the plea into account even if there is no subjective intention to “facilitate the administration of justice”. The principles outlined in R v Thomson and Houlton regarding the weight to be given to the utilitarian value of the plea for saving the expense of a “contested hearing”, must therefore be given their full force.

The Court also held there was nothing in the Act that expressly or implicitly referred to the common law rule that a person should not be penalised for exercising their right to trial. While the Court did not doubt the application of this principle in NSW, it was not a principle that must be invoked to construe s 22 restrictively, in the absence of any indication to the contrary: [65].

[9-160] Guilty plea discount and Form 1 offences

Last reviewed: February 2026

The discount for an offender’s guilty plea is to be applied to the sentence for an offence after any Form 1 offences have been taken into account: Koosmen v R [2025] NSWCCA 122 at [92]. The discount is not to be applied to Form 1 offences, however, as there is no statutory or common law requirement to take into account that an offender pleaded guilty to an offence if it is being taken into account on a Form 1: Gordon v R [2018] NSWCCA 54 at [95]. Requiring a court to consider the procedural history of Form 1 offences when assessing the discount for the guilty plea for the primary offence would add significant complexity to the sentencing task: [96]–[98].

See Taking further offences into account (Form 1 offences) at [13-200]ff.

[9-170] Combining the plea with other factors

Last reviewed: February 2026

Care needs to be taken when there are a number of grounds for extending leniency, such as a plea of guilty with a measure of remorse, as well as the offender’s assistance to authorities and promise of future assistance.

Appeal courts have generally endorsed the proposition that discounts for assistance and a guilty plea should ordinarily be a single, combined figure: Buckley v R [2021] NSWCCA 6 at [85]; Z v R [2014] NSWCCA 323 at [27]; SZ v R [2007] NSWCCA 19 at [1]; [3]; [53]; R v El Hani [2004] NSWCCA 162 at [69]. See further at [9-140] Guilty plea discounts for offences dealt with on indictment; [9-260] Requirement to indicate reduction for assistance; and [9-270] Applying the discount.

[9-190] Section 22A — Power to reduce penalties for facilitating administration of justice

The degree of pre-trial disclosure by the defence (as provided by s 22A) is a mitigating factor to be taken into account in determining the appropriate sentence for an offence: s 21A(3)(l) Crimes (Sentencing Procedure) Act 1999.

Section 22A Crimes (Sentencing Procedure) Act 1999 provides as follows:

(1) 

A court may impose a lesser penalty than it would otherwise impose on an offender who was tried on indictment having regard to the degree to which the administration of justice has been facilitated by the defence (whether by disclosures made pre-trial or during the trial or otherwise).

(2) 

A lesser penalty that is imposed under this section in relation to an offence must not be unreasonably disproportionate to the nature and circumstances of the offence.

Although s 22A refers to “an offender who was tried on indictment”, a discount under the provision is not confined to where there has been a trial on indictment: Sampson v R [2025] NSWCCA 25 at [37]; Doyle v R [2022] NSWCCA 81 at [19]; BAP v R [2024] NSWCCA 206 at [54].

In Dukagjini v R [2023] NSWCCA 210, Wilson J said at [18]:

The assessment of the degree to which the defence facilitated the administration of justice need not be confined to the conduct of any trial, as the terms of s 22A(1) make clear. The application of the provision is broader than that and takes in the course of justice relevant to the proceedings in question. The “course of justice” begins when a criminal charge is brought and the jurisdiction of a court invoked: R v Todd (7) (1957) SASR 305, at 331; The Queen v Rogerson (1992) 174 CLR 268.

Section 22A(2) incorporates the common law principle of proportionality as a control on reductions for facilitation of the administration of justice: Camilleri v R [2023] NSWCCA 106 at [44]; see Way v R (2004) 60 NSWLR 168 at [45] for the same qualification of proportionality that applied to the previous form of the provision. What is prohibited is an unreasonably disproportionate sentence, not a disproportionate sentence: Britton v R [2024] NSWCCA 138 at [151].

Matters under s 22A may be treated as a mitigating factor under s 21A(3)(l) (the degree of pre-trial disclosure by the defence) and taken into account as part of the instinctive synthesis approach to sentencing: Droudis v R [2020] NSWCCA 322 at [103]–[104]. It is not an error to treat s 22A as a mitigating factor rather than a discount: Droudis v R at [100].

Willingness to facilitate the course of justice under s 22A is conceptually distinct from, and requires separate treatment to, a discount for a guilty plea under s 25D(1), as well as the mitigating factor of remorse under s 21A(3)(i): Doyle v R at [10]–[13], [19]; Abdallah v R [2025] NSWCCA 98 at [49]; R v Thomson; R v Houlton [2000] NSWCCA 309 at [114]–[123]; Cameron v The Queen (2002) 209 CLR 339 at [11]–[19]; see further [9-140] Guilty plea discounts for offences dealt with on indictment.

Section 22A does not require a judge to specify a percentage discount or quantify mathematically the extent by which a sentence has been reduced under s 22A. However, it is desirable to do so where the facilitation of the administration of justice makes a significant difference to the sentence. This provides transparency to the sentencing process and encourages the defence to conduct criminal trials efficiently and expeditiously: Droudis v R at [104]–[105].

If the defence seeks a reduction in accordance with s 22A, it should be raised in the sentence proceedings and include identification of the specific factors said to demonstrate the facilitation of the administration of justice, as opposed to the utilitarian value of the plea and remorse: BAP v R at [62]; Abdallah v R [2025] NSWCCA 98 at [58]. Further, where relevant, the trial judge is best placed to assess whether the conduct of the trial by defence “truly” facilitated the administration of justice: Mulvihill v R [2016] NSWCCA 259 at [263].

Admissions, disclosures, limiting facts in issue

In Droudis v R, the Court found the sentencing judge properly considered the offender was entitled to credit under s 22A for facilitating the efficient conduct of the judge-alone trial by finding the co-operation envisaged by s 22A extended to admissions, disclosures made before or during the trial and limiting the facts in issue: [50]–[51], [99]–[100]. In R v Doff [2005] NSWCCA 119, making extensive admissions and refraining from dilatory and technical objections of no merit so as to leave a single issue of substance for the jury showed a willingness by the offender to facilitate the course of justice so as to be taken into account on sentence: [58(c)]; see also Britton v R at [151].

In Menzies v R [2024] NSWCCA 248, the offender was entitled to some benefit under s 22A by agreeing to certain facts, but the benefit was limited because proof of the limited admitted facts would have been undemanding for the Crown and, in any event, the assistance was offset by the manner in which he chose to cross-examine a key Crown witness at trial: at [43].

Judge-alone trials

In Christov v R [2009] NSWCCA 168, the Court accepted an election for a judge-alone trial may contribute to the utilitarian value of the manner in which a trial is conducted as it can enable the issues to be limited and save court time: [68]–[69]. However, s 22A is a discretionary provision, and a judge-alone trial does not inevitably, or necessarily, result in efficiencies or savings: Dukagjini v R at [13]–[14], [18], [20], [25].

Super call-overs

In BAP v R, the Court observed that “super call-overs” are a highly effective way of managing the high volume of work in the District Court by reducing the matters that proceed to trial and, in an appropriate case, the resolution of a matter at a super call-over may demonstrate an offender’s facilitation of the administration of justice over and beyond the utilitarian value of the plea: [61]. The extent to which s 22A might be called in aid where a plea of guilty is entered during a “super call-over” warranting the imposition of a lesser penalty beyond the discount mandated by s 25D will depend on the facts and circumstances of a particular case: Sampson v R at [122]; BAP v R at [61].

[9-200] Section 23 — Power to reduce penalties for assistance to authorities

Section 23(1) provides the basis of a court’s power to discount any sentence for a State offence where the offender has provided assistance to law enforcement authorities. Section 23(2) provides a list of matters the court must consider in deciding whether to impose a lesser penalty, and the nature and extent of the penalty.

In York v The Queen (2005) 225 CLR 466, Gleeson CJ at [3] observed:

It is common sentencing practice to extend leniency, sometimes very substantial leniency, to an offender who has assisted the authorities, and, in so doing, to take account of any threat to the offender’s safety, the conditions under which the offender will have to serve a sentence in order to reduce the risk of reprisals, and the steps that will need to be taken to protect the offender when released. The relevant principles are discussed, for example, in R v Cartwright (1989) 17 NSWLR 243; R v Gallagher (1991) 23 NSWLR 220.

A lesser penalty imposed under s 23 must not be unreasonably disproportionate to the nature and circumstances of the offence: s 23(3). If a lesser penalty is imposed for assistance, or an undertaking to assist, law enforcement authorities, the court must:

(a) 

indicate to the offender, and make a record of the fact, that the lesser penalty is being imposed for either or both of those reasons, and

(b) 

state the penalty that otherwise would have been imposed, and

(c) 

where the penalty is imposed for both reasons, state the amount by which the penalty has been reduced for each reason: s 23(4).

For the statutory provisions and principles applicable to sentencing Commonwealth offenders who have provided assistance, see Co-operation with law enforcement agencies: ss 16A(2)(h) and 16AC, Past co-operation and Future assistance in [16-025].

[9-210] Rationale

Last reviewed: February 2026

In R v Cartwright (1989) 17 NSWLR 243, concerning the common law, the Court said, to encourage offenders to supply the authorities with information and give evidence to bring other offenders to justice, an appropriate reward should be granted, irrespective of the offender’s motivation. The offender’s full and frank cooperation should be encouraged, and the extent of any discount will depend to a large extent upon the offender’s willingness to assist, and that the information is such that it could significantly assist authorities: 252.

The purpose and object of the conferral of power in s 23(1) was the public interest identified in R v Cartwright, subject to s 23(3): R v XX [2017] NSWCCA 90 at [54]. Therefore, the rationale for the discount as explained in R v Cartwright remains valid: AGF v R [2016] NSWCCA 236 at [35]–[36]. However, this does not exhaust the rationale for the provision, given s 23(1) also extends to the type of assistance embraced by an Ellis discount: R v XX at [46]; see also the summary of principles in Owens v R [2023] NSWCCA 198 at [76] cited in Hemsworth v R [2025] NSWCCA 2 at [108]; see also [9-240].

[9-220] Procedure

Last reviewed: February 2026

Presenting evidence of assistance

Assistance is a matter of mitigation and the offender bears the onus of proof, on the balance of probabilities, of establishing that assistance has been given and a discount should follow: Irwin v R [2021] NSWCCA 172 at [84] citing R v SS [2021] NSWCCA 56. It is incumbent on the offender to establish precisely what information or assistance has been provided: Ahmad v R [2021] NSWCCA 30 at [36]. However, the Crown has an obligation to assist the offender discharge this burden: R v Cartwright (1989) 17 NSWLR 243 at 254–255; R v Bourchas [2002] NSWCCA 373 at [99]; see also R v Gallagher at 232. In such cases, the Crown is more the agent of the public interest and must act fairly towards the offender: R v Bourchas at [93].

Evidence of assistance is typically in the form of an affidavit, or letter, of assistance by a senior law enforcement officer, who identifies the assistance provided and makes an assessment as to its value. A statement taken from an offender provided on the basis the evidence contained in it will not be used against them (an induced statement) may also be tendered to demonstrate to the court the extent of their assistance for the purpose of mitigation. When the offender’s statement is tendered it is incumbent on the parties to identify for the court any limitations on its use: Macallister (a pseudonym) v R [2020] NSWCCA 306 at [39]–[41].

A statement of assistance is tendered for the sole purpose of s 23. As is the case when an offender’s induced statement is tendered, the basis for tendering an affidavit or letter of assistance should be agreed and clearly stated and the question of whether there is any restriction on its use identified. The same caution used when considering an induced statement should also be exercised when a letter of assistance is tendered for the sole purpose of s 23: Neil Harris (a pseudonym) v R [2019] NSWCCA 236 at [61] applying the principles in R v Bourchas at [99]. See further Offender’s induced statement cannot be used adversely below.

Necessity of court to scrutinise the information

Commonly, the Crown and the offender put forward the argument in favour of leniency being extended to an offender who has cooperated with authorities so, usually, no opposing or qualifying point of view is put forward. In such cases, the judge needs to take special care, and be astute to ensure the information concerning assistance is accurate, reliable, and complete: R v Gallagher at 232; see also R v Fisk (unrep, 21/7/1998, NSWCCA).

Notwithstanding, an inquiry relating to the nature and quality of the assistance should be dealt with in a broad and general way without descending into minute detail as it would subvert the benefit otherwise afforded to the public interest for the judge to have to do otherwise: R v Cartwright at 253. Where information given to assist authorities is only partly true and does in fact assist the authorities, the fact it was partly false does not itself disentitle the offender from a reduction in sentence: R v Downey (unrep, 3/10/97, NSWCCA).

Maintaining confidentiality of material

Evidence of assistance relied on in sentence proceedings must be dealt with carefully to maintain its confidentiality. It is prudent to raise with the parties the approach to be taken in an individual case as to the evidence and sentencing remarks.

Appropriate non-publication orders should be tailored to ensure the offender has the opportunity to consider and test the accuracy of the evidence and to make submissions. Depending on the nature of the material, this may require providing an offender’s counsel with access to the material on certain terms: HT v The Queen (2019) 269 CLR 403 at [45]–[46]; [57]; [66]–[67]. In HT v The Queen the High Court concluded the offender was denied procedural fairness during the Crown sentence appeal because she was not provided with access to the affidavit of assistance provided by police. The fact the affidavit was not adverse to her was irrelevant: HT v The Queen at [25]; see also Jones (a pseudonym) v R [2021] NSWCCA 225 in which HT v The Queen was applied, and [1-349] Closed court, suppression and non-publication orders in the Criminal Trial Courts Bench Book.

There is a tension in s 23 between the obligation to provide reasons in open court and the need to protect confidentiality. Revealing the fact or detail of assistance may put an offender or their family at risk, and undermine or destroy the benefits law enforcement authorities may obtain from that assistance. In those circumstances, providing a detailed exposition of the factors in s 23(2) may defeat the purpose of the statutory provision: Greentree v R [2018] NSWCCA 227 at [55]–[56]. For example, in Greentree v R the Court found it was not an error for the judge to refer to the “significance and the usefulness” of the assistance without elaboration. Such an approach appropriately balanced the obligation to provide reasons with the need to protect confidentiality: [56]; cited in Darren Brown v R (No 2) [2019] NSWCCA 69 at [33]. If the parties are of the view that the court should use a pseudonym where assistance has been provided, they should make an application for the court to do so, which may be considered on its merits and determined, with the court implementing the conclusion in the publication of the sentencing remarks: Darren Brown v R (No 2) at [33].

Offender’s induced statement cannot be used adversely

An induced statement admitted in sentence proceedings cannot be used against an offender: R v Bourchas at [99].

In R v Bourchas, the offender entered a guilty plea at the earliest opportunity and provided significant assistance to authorities. On sentence, the Crown tendered, over objection, his long and detailed statement, which was made following a promise that it would not be used against him. The sentencing judge admitted the statement and took it into account when sentencing the offender, including information unfavourable to him, which was not otherwise in evidence.

The Court held the judge erred by admitting the offender’s statement and taking it into account otherwise than as evidence of his assistance to authorities: [100]. Giles JA (Levine and Sperling JJ agreeing), at [99], summarised his findings as follows:

1. 

The offender carries the burden of proving assistance to the authorities, as a matter going to mitigation.

2. 

The Crown should assist the offender in the discharge of that burden.

3. 

The assistance may extend to the Crown tendering the evidence of assistance to the authorities, but the Crown should not do so over the objection of the offender.

4. 

A statement made by way of assistance to the authorities on an undertaking that the information in it will not be used against the offender may properly be admitted on the basis that the information in it will not be used against the offender, and with its use restricted accordingly.

5. 

When the offender tenders a statement made by way of assistance to the authorities, or accepts the Crown’s assistance in tendering such a statement, it is prudent that the basis of the tender be agreed and stated showing any restriction on the use of the information in the statement; if there is disagreement, a ruling can be made in the normal way.

6. 

In the absence of an agreed basis of tender or a ruling at the time of admission, whether use of a statement made by way of assistance to the authorities is restricted will depend on the circumstances, but normally the information in the statement cannot be used against the offender.

See also JMS v R [2010] NSWCCA 229 at [29]; Govindaraju v R [2011] NSWCCA 55 at [66]; Macallister (a pseudonym) v R at [53]; Neil Harris (a pseudonym) v R at [61].

[9-230] Broad scope of s 23(1)

Last reviewed: February 2026

Section 23 takes an expansive approach to what constitutes “assistance”: R v XX [2017] NSWCCA 90 at [53].

Assistance to authorities most commonly occurs in the form of implicating accomplices and/or giving evidence as a Crown witness. However, voluntary disclosure to law enforcement authorities of otherwise unknown guilt also falls within the ambit of s 23: CMB v Attorney General for NSW [2015] HCA 9 at [40]–[41]; [71]–[72]; Panetta v R [2016] NSWCCA 85 at [33]–[34]; Le v R [2019] NSWCCA 181 at [50]–[52]; Ahmad v R [2021] NSWCCA 30 at [24]. A discount granted for this type of assistance is commonly referred to as an Ellis discount (from R v Ellis (1986) 6 NSWLR 603) discussed below at [9-240] Voluntary disclosure of unknown guilt — the Ellis principle.

Another situation where a discount was afforded arose in RJT v R [2012] NSWCCA 280, where an offender being sentenced for two child sexual assault offences told police he was sexually assaulted by his grandfather as a child. It was held that while s 23 extended to assistance of this kind, the level of discount should be more limited than otherwise applied (10% was found to be appropriate): [9]–[10]; see also Whiley v R [2014] NSWCCA 164 at [35].

However, not all information provided by an offender amounts to assistance for the purposes of s 23. For example, the mere fact an offender participates in a recorded interview and makes admissions about the offence does not amount to assistance within the meaning of s 23(1): Le v R [2019] NSWCCA 181 at [53]–[56]; Browning v R [2015] NSWCCA 147 at [123]. In R v XX, the Court identified two further examples falling outside of s 23(1): unwitting assistance (R v Calderoni [2000] NSWCCA 511 at [9]) and pre-trial disclosure (s 22A Crimes (Sentencing Procedure) Act): [32], [39].

In Vaiusu v R [2022] NSWCCA 283, the Court held the offender, who had entered into negotiations with police for the surrender of unlawful firearms, was not entitled to a discount as a concluded agreement had not been reached, and he had not “undertaken to assist” in accordance with s 23(1): [67].

In R v XX [2017] NSWCCA 90, the Court made the following observations (at [32]–[35]) about s 23(1):

  • “Assistance” is not defined in the provision. The only limitations are that the assistance be given to “law enforcement authorities” in the “prevention, detection or investigation, or in proceedings relating to” an offence;

  • The reference to “any other offence” in the text of the provision clearly contemplates the assistance may have been provided in relation to an offence other than the one for which the offender is being sentenced;

  • Nothing in s 23(1) suggests the assistance must have been provided after the offender’s arrest; past assistance, provided prior to arrest or even the offender’s commission of the subject offence, is therefore capable of falling within the provision.

Section 23(1) confers a discretion and not an obligation on a sentencing judge to proffer a discount when assistance has been provided:[31]. The factors listed under s 23(2) are relevant to whether any discount should be provided, and an assessment of the level of discount to be provided: [61]; Le v R at [55]. In noting the example given by RA Hulme J in his dissent in RJT v R at [40], of where an offender seeks a discount on the basis he reported a home burglary to police many years before, the Court stated that even if that situation fell within s 23(1), a proper application of the criteria in s 23(2) would compel the conclusion that no lesser penalty should be imposed: [53].

The sentencing judge in R v XX erred by allowing the offender a 15% discount under s 23 in circumstances where, six or seven years before his arrest for child sexual offences, he had assisted in the prosecution of a conspiracy to murder charge: at [63]. Although that assistance was within the scope of s 23(1), the proper exercise of the discretion could only have led to a refusal to impose a lesser sentence. The assistance and the subject offence were entirely unrelated, there was no ongoing risk of reprisals and the respondent had already derived a benefit ($17,000) from providing that assistance (all matters under s 23(2)(i), (g) and (f) respectively): [62].

Because s 23 applies to Ellis discounts, it follows that a court must also consider the factors in s 23(2) when determining whether to proffer the discount: R v AA [2017] NSWCCA 84 at [45]. The sentencing judge in that case erred by failing to do so: [49].

If the offender submits assistance to authorities under s 23 should be taken into account on sentence, the judge’s sentencing remarks should make clear it was understood, considered, and either accepted or rejected, although the judge is not required to refer to s 23 in terms: Hemsworth v R [2025] NSWCCA 2 at [88].

[9-240] Voluntary disclosure of unknown guilt — the Ellis principle

Last reviewed: February 2026

In R v Ellis (1986) 6 NSWLR 603, decided before the enactment of s 23, the Court held that an offender who voluntarily discloses their involvement in serious crime about which the police have no knowledge is entitled to a “significant added element of leniency”. In that case, not only did the offender plead guilty, but he voluntarily disclosed to police for the first time his involvement in seven armed robberies. The degree of leniency afforded to an offender in cases of this kind will vary depending on the likelihood of discovery of the offence: 604.

Although, since at least CMB v Attorney General for NSW (2015) 256 CLR 346 it has been accepted that assistance of this kind may entitle an offender to a reduced sentence under s 23, R v Ellis and the cases which have considered it provide guidance as to why such assistance may justify a sentence discount under s 23: see R v SS [2021] NSWCCA 56 at [43]–[44], [59]–[65].

In Ryan v The Queen (2001) 206 CLR 267, McHugh J discussed the extent to which leniency may be extended pursuant to R v Ellis, saying at [15]:

The statement in Ellis that “the disclosure of an otherwise unknown guilt of an offence merits a significant added element of leniency” is a statement of a general principle or perhaps more accurately of a factor to be taken into account. It is not the statement of a rule to be quantitatively, rigidly or mechanically applied. It is an indication that, in determining the appropriate sentence, the disclosure of what was an unknown offence is a significant and not an insubstantial matter to be considered on the credit side of the sentencing process. How significant depends on the facts and circumstances of the case.

A sentencing judge is not required to allow a significant discount in every case an offender has voluntary disclosed their guilt: R v GLB [2003] NSWCCA 210 at [33].

Howie J (Basten JA and Grove J agreeing) said in Lewins v R [2007] NSWCCA 189 at [18]:

Although the leniency referred to in these decisions extends to those cases where the offender volunteers additional criminality otherwise unknown to the police, the extent of the leniency will obviously not be of the same significance as in those cases where the police are unaware of any criminal offences committed by the offender. It is a matter of degree. In some cases the known criminality might be so great that little leniency can be shown for the further offences revealed by the offender.

In Panetta v R [2016] NSWCCA 85, the offender was entitled to considerable leniency for his confession in circumstances where there was no prospect of the offence (murder) or the offender’s involvement in it coming to light: [2]. On the other hand, in R v SS, the offender was not entitled to leniency for assistance because of his admissions as there was independent evidence of his guilt: at [83].

An offender may be entitled to a discount where (precipitated by the co-offender) the police are close to identifying the offender and then the offender voluntarily surrenders and confesses: see for example R v Hasan [2005] NSWCCA 21 at [23].

Relevance to remorse and contrition

The voluntary confession of criminality will also be relevant to other, more general considerations, such as remorse, the prospects of rehabilitation and the likelihood of further offending: Lewins v R at [19]; see also [10-620] Contrition and [11-110] Section 21A(3)(i) — remorse shown by the offender. In R v SS, although the offender was not entitled to a discount for assistance, his admission supported a finding of genuine remorse: [86].

[9-250] “Unreasonably disproportionate” penalty — s 23(3)

Last reviewed: February 2026

A court is required to consider all the matters listed under s 23(2) and must not reduce a sentence so that it becomes unreasonably disproportionate to the nature and circumstances of the offence: s 23(3). Hence, there is a limit to the value provided by assistance to authorities. In R v Chaaban [2006] NSWCCA 107, Hunt AJA (agreeing with Rothman J’s orders; Simpson J also agreeing) observed at [3]:

In Regina v Gallagher (1991) 23 NSWLR 220 at 232 — well before s 23(3) was enacted — Gleeson CJ (with whom I expressly agreed on this issue, at 234), after pointing out that discounts of this kind are for the benefit of both the Crown and the offender, and that there is usually no-one to put an opposing or qualifying point of view, said:

“Public confidence in the administration of criminal justice would be diminished if courts were to give uncritical assent to arguments for leniency, which are being jointly urged by both the prosecution and the defence, in circumstances which may call for a close examination of the alleged assistance. Care must also be taken to ensure that the ultimate sentencing result that is produced is not one that is so far out of touch with the circumstances of the particular offence and the particular offender that, even understood in the light of the considerations of policy which supports [the discounts given], it constitutes an affront to community standards. If sentencing principles are capable of producing an outcome of that kind, then that calls into question their legitimacy.” [emphasis in original]

Section 23(3) is the statutory enactment of this principle from R v Gallagher. The term “unreasonably” in s 23(3) is given a wide operation: CMB v Attorney General of NSW (2015) 256 CLR 346 at [78].Where a discount is applied to reflect a guilty plea, the terms of s 23(3) must be separately applied with respect to a discount for assistance; however, the court should be mindful of the combined effect of the two discounts: Panetta v R at [74]; SL v R [2015] NSWCCA 30 at [11]–[12]; see also Z v R [2014] NSWCCA 323 at [26].

Resolving assertions on appeal that sentence unreasonably disproportionate

Where a discount has been allowed for assistance and the Crown appeals the sentence, the issue on appeal is not whether the sentence is “unreasonably disproportionate” within the meaning of s 23(3), but whether it was open to the sentencing judge to decide that the sentence actually imposed was not unreasonably disproportionate. The focus is on whether the primary judge’s conclusion was open. Whether a sentence is unreasonably disproportionate is a judgment about which reasonable minds may differ: CMB v Attorney General (NSW) at [78].

See also Appeals at [70-000]ff.

[9-260] Requirement to indicate reduction for assistance — s 23(4)

Last reviewed: February 2026

Section 23(4) requires a court that imposes a lesser penalty because the offender has assisted or has undertaken to assist, to indicate that a lesser penalty is being imposed. The court must state the penalty that otherwise would have been imposed and the amount by which the sentence is reduced.

The text of s 23(4)(b) — that the court is to “state the penalty that it would otherwise have imposed” — refers to the appropriate penalty disregarding only the assistance to the authorities: R v Ehrlich [2012] NSWCCA 38 at [11]; [33]. Where full time imprisonment is imposed, compliance with s 23(4) will generally, if not invariably, permit the discount to be identified, even if not expressly stated, by calculating the proportion of the sentence imposed of that which would otherwise have been imposed, each of which are to be stated: [9].

Because s 23 also applies to Ellis discounts, the court is required under s 23(4) to state the nature and extent of any reduction of the sentence which would otherwise have been imposed absent that disclosure of guilt, and quantify the discount separately: Panetta v R [2016] NSWCCA 85 at [1]; [33]–[34]; [60]; R v AA [2017] NSWCCA 84 at [43].

Where a discount is given for a guilty plea, and past and future assistance, in most cases the court will be required to indicate the discount for all three to comply with s 23(4): LB v R [2013] NSWCCA 70 at [44] cited in A v R [2020] NSWCCA 145 at [92]; see also Wei v R [2025] NSWCCA 150 at [53]. Compliance with ss 23(3) and 23(4) cannot be fulfilled by a statement of individual discounts followed by a process of “compression” to achieve a result that does not contravene s 23(3): [45]; see below at [9-270] Applying the discount.

In R v AA, the Court considered the impact of a failure to comply with s 23(4), noting that while s 23(6) provides that failure to comply with s 23(4) does not “invalidate the sentence”, s 101A of the Act provides that a “failure to comply with a provision of this Act may be considered by an appeal court in any appeal against sentence even if this Act declares that the failure to comply does not invalidate the sentence”. The combined effect of the provisions is therefore that a failure to comply with s 23(4) is not a jurisdictional error but complaints about such failures fall to be considered as part of the appellate process: [44].

[9-270] Applying the discount

Last reviewed: February 2026

In order to reduce a sentence because of an offender’s assistance, the court must have regard to the mandatory considerations in s 23(2), and the discount must be specified: Ahmad v R [2021] NSWCCA 30 at [41]. Even if a court chooses not to impose a lesser penalty for the assistance given, regard must still be had to the matters identified in s 23(2): [41]; R v AA [2017] NSWCCA 84 at [45].

Method of calculation when assistance combined with guilty plea

The application of s 23 when combined with a discount for a guilty plea has been a source of contention. This is particularly so because s 23(4) does not prescribe a method or manner in which the discounting is to be achieved: R v Ehrlich [2012] NSWCCA 38 at [11]; Hamzy v R [2014] NSWCCA 223 at [72]. It is also important to bear in mind that the authorities on this issue (to the extent they address indictable matters) largely pre-date the Early Appropriate Guilty Plea mandatory discount scheme.

Generally, appeal courts have endorsed a single, combined figure for discounts for assistance and a guilty plea: Buckley v R [2021] NSWCCA 6 at [85]; Z v R [2014] NSWCCA 323 at [27]; SZ v R [2007] NSWCCA 19 at [1]; [3]; [53]; R v El Hani [2004] NSWCCA 162 at [69]. To comply with s 23(4), a court is further required to quantify the discrete discounts making up that composite figure: LB v R [2013] NSWCCA 70 at [44]; see also [9-260].

Level of discount

Chief Justice Gleeson (Meagher JA; Hunt J agreeing) said in R v Gallagher at 230:

… it is essential to bear in mind that what is involved is not a rigid or mathematical exercise, to be governed by “tariffs” derived from other or different cases but, rather, one of a number of matters to be taken into account in a discretionary exercise that must display due sensitivity towards all the considerations of policy which govern sentencing as an aspect of the administration of justice.

As Basten JA observed in R v Ehrlich, although Gleeson CJ’s remarks are qualified by s 23, their “tenor is not diminished”: [7]. It is not helpful to speak of a level of discount as being generally available as it makes assumptions about the matters to which the court must have regard in s 23(2) and runs the risk of selective reliance on authorities to the exclusion of others: [6]; Hamzy v R at [74]. The process embarked upon in reducing a sentence for assistance is not one of arithmetic calculation or the blind application of percentage discounts: Haouchar v R [2014] NSWCCA 227 at [39]. In R v Z [2006] NSWCCA 342, Beazley JA (Howie J agreeing; Adams J dissenting) said at [88]:

the focus should not be so much upon the precise numerical value of the discount but rather upon the question whether, after all relevant matters have been taken into account, the sentence imposed is appropriate.

In Buckley v R at [1]; [87] and McKinley v R [2022] NSWCCA 14 at [48]–[50], the Court affirmed these views. In McKinley v R, the Court observed that cases such as R v Sukkar [2006] NSWCCA 92, SZ v R and FS v R [2009] NSWCCA 301, where a certain level of discount was said to be inappropriate in certain circumstances, “probably did not withstand later authority criticising an arithmetic approach to sentencing”: [48]–[49]; see also R v Hopkinson [2022] NSWCCA 80 at [152]–[153], although in that case the Court also indicated in its reasons, the previously accepted limits for a combined discount.

Ultimately, the sentencing judge must stand back and ask whether the resulting sentence is just and reasonable, not only to the offender but also to the community at large, after taking into account the various statutory and common law principles and applying such discounts that arise on the particular facts: SZ v R at [5]. The Court in SZ v R also held that it is important to avoid double counting in cases of assistance by finding special circumstances after the non-parole period has already been reduced: [11].

Notwithstanding, the following certain general propositions have been previously followed in relation to the appropriate quantum for combined discounts:

  • A combined discount of more than 50% will not comply with s 23(3) and rarely will a discount of more than 60% be appropriate: Rodriego (a pseudonym) v R [2021] NSWCCA 237 at [31]; Buckley v R [2021] NSWCCA 6 at [85]; SZ v R at [11]; Z v R [2014] NSWCCA 323 at [33]; Panetta v R at [7]; [75] where, in the unusual circumstances of that case, the Court applied a 60% discount; see also R v NP [2003] NSWCCA 195 at [30].

  • A combined discount of 50% incorporates an offender serving their sentence in more onerous conditions (in respect of which there must be evidence), otherwise the combined discount should not normally exceed 40%: Brown v R [2010] NSWCCA 73 at [38]; Haouchar v R [2014] NSWCCA 227 at [37].

Although courts continue to refer to these general propositions on occasion, arguably, they should not be understood as a rigid mathematical rule but merely an expression of the requirement that the sentence, after applying any discount, must not be unreasonably disproportionate to the nature and circumstances of the offence in accordance with s 23(3): see R v Hopkinson at [155]; RA v R [2024] NSWCCA 149 at [144], [146]; Buckley v R [2021] NSWCCA 6 at [1] (McCallum JA); Rodriego (a pseudonym) v R at [67] (Bellew J); see [9-250] above.

The advent of more standardised discounts, such as the utilitarian value of a guilty plea being as high as 25%, following the decision of R v Thomson and Houlton (2000) 49 NSWLR 383, means courts have less scope to give a discount for assistance in cases of an early plea: SZ v R at [9]. The statutory fixed discounting scheme for the utilitarian value of a guilty plea in matters dealt with on indictment in Pt 3, Div 1A, Crimes (Sentencing Procedure) Act 1999 may operate to similar effect: see Guilty plea discounts for offences dealt with on indictment at [9-140] and Combining the plea with other factors at [9-170].

Level of discount for assistance only

In Z v R [2014] NSWCCA 323, in circumstances where the offender was found guilty after trial, the Court held that the sentencing judge erred in purporting to follow SZ v R to the effect that a discount for assistance alone should not normally exceed 25%: [29]–[30]. The Court stated that “[t]o construe the Act with that level of mathematical rigidity would come close to punishing some offenders who offer assistance for not pleading guilty”: [34].

Cumulative and aggregate sentences

It is inappropriate to apply a discount for assistance wholly to the non-parole period as it is only likely to skew the whole sentencing exercise, particularly after a large discount has been given for the guilty pleas when fixing the head sentences: R v MacDonnell [2002] NSWCCA 34 at [48].

When the Court imposes an aggregate sentence, the discount must be applied to each indicative sentence, not the aggregate sentence: TL v R [2017] NSWCCA 308 at [102]–[103]; Elsaj v R [2017] NSWCCA 124 at [56]; PG v R [2017] NSWCCA 179 at [71]–[76]; Berryman v R [2017] NSWCCA 297 at [29]; see also AC v R [2023] NSWCCA 133 at [67]. However, in Davies v R [2019] NSWCCA 45, the Court held it was entirely appropriate for the sentencing judge to apply an across-the-board discount in the circumstances, where there was no or little information about the plea negotiations for each offence and the pleas were eventually entered at the same time: [47]; see also [7-507] Settled propositions concerning s 53A.

When there is a degree of accumulation of multiple sentences, it is necessary to ensure that any discount is not eroded by the process of accumulating sentences: CM v R [2013] NSWCCA 341 at [44]. Discounts applied to individual sentences need not be reflected with mathematical precision in the overall or effective term. There is, however, a need for some proportionality: [48].

[9-280] Promised assistance

Last reviewed: February 2026

Appeals following a failure to provide promised assistance

The Crown may appeal against the reduced sentence if the person fails to fulfil their promise of assistance: s 5DA Criminal Appeal Act 1912. In R v KS [2005] NSWCCA 87 Wood CJ at CL (Tobias JA and Buddin J agreeing) said at [19]:

The ability of the Crown to invoke this section is a very important part of the criminal justice system. Persons who give undertakings and who receive the benefit of those undertakings by way of a discounted sentence can, subject to exceptional circumstances, expect to have their sentences increased if they renege on their undertaking to give evidence. The departure from an undertaking of that kind is not to be regarded lightly and it will normally justify appellate intervention.

Where the undertaking is to give evidence, adherence to that undertaking requires more than simply attending court: R v X [2016] NSWCCA 265 at [43]. In R v X, the offender gave an undertaking to give evidence as a Crown witness in accordance with an earlier police statement. Although he attended court and gave evidence, the complete failure to give evidence in accordance with his statement meant he breached the undertaking: [44]–[46]. See also R v MG [2016] NSWCCA 304 at [42].

In R v James [2014] NSWCCA 311, where the failure to wholly or partly fulfil an undertaking was disputed between the parties, it was accepted that the Court would at least have to be “comfortably satisfied” the undertaking had not been fulfilled, which it was not in the circumstances. Although it was not necessary to determine in light of that conclusion, the Court questioned whether parity of reasoning with The Queen v Olbrich (1999) 199 CLR 270 would require satisfaction of that fact beyond reasonable doubt: [46].

Exercising the 5DA discretion

The appellate court’s power to vary a sentence under s 5DA(2) is discretionary, and the court may exercise its discretion not to intervene in an appropriate case, despite an offender not fulling their promise to assist: CC v R [2021] NSWCCA 71 at [68]–[71]; see also R v Skuthorpe [2015] NSWCCA 140 at [36].

The exercise undertaken by the court is not one of punishment, but of withdrawing an unearned benefit from a person who entered into a bargain and then failed to fulfil it: R v Dimakos (a pseudonym) [2018] NSWCCA 78 at [50]; see also CC v R at [67] and the cases there cited. There are obvious systemic reasons why such a person should, except in unusual circumstances, suffer consequences as a result: R v Dimakos at [53].

In R v OE [2018] NSWCCA 83, the Court summarised the proper approach to reversing or adjusting a sentence to take account of a failure to adhere to an undertaking upon which a discount has been given as:

1. 

remove all the discounts to find the starting point of the head sentence at first instance;

2. 

apply any discount for a guilty plea and any remaining discount for assistance to calculate the head sentence; and

3. 

apply the same ratio of non-parole period to head sentence as fixed by the first instance sentencing judge: [55].

See also: R v GD [2013] NSWCCA 212 at [48]–[52]; R v Shahrouk [2014] NSWCCA 87 at [65].

Difficulties may arise where the reason advanced for not fulfilling an offer of assistance is that the respondent has been threatened. In R v Bagnall and Russell (unrep, 10/6/94, NSWCCA), the Court exercised its discretion not to disturb the sentences even though the offenders failed to comply with their undertakings because the authorities had failed to provide reasonable protection for them. In R v El-Sayed (2003) 57 NSWLR 659 at [32]–[35], Simpson J said of cases where threats have been made:

Generally speaking (apart from situations such as that which arose in Bagnall and Russell) the reason for any failure to honour the undertaking is of little materiality. Where, as is here put forward, the reason for the failure to honour the undertaking lies in an understandable fear resulting from threats, that circumstance does not affect the fact that the undertaking has not been honoured. The basis for the discount lies in a factual assumption — that certain evidence will be given. If the evidence is not given, then the factual underpinning for the discount disappears. The discount has been given on a premise which has subsequently been proven to be false …

It would be anomalous if an offender, such as the present respondent, who was, at the time of sentencing, willing and able to give assistance, but subsequently, by reason of threats of the same kind, found himself or herself unable or unwilling to do so, could retain the benefit given. There is no reason of principle why the two offenders should be distinguished and one should receive a reduction in sentence and the other be denied it, merely by reason of the timing of the threats. In my opinion, the fact that the threats were made does not justify the court in declining to exercise the s 5DA(2) discretion in favour of the Crown.

However, each case must be decided on its own facts and the discretion to dismiss an appeal is not limited to cases where the authorities fail to provide the prisoner with reasonable protection: R v Chaaban [2006] NSWCCA 352 at [47] and [55].

In R v Shahrouk, the Court acknowledged there has been tension in the authorities about whether a sentence should be adjusted only to reflect the discount for future assistance, or whether the whole of the discount, particularly any discount for past assistance, can be reconsidered: [42]. While earlier cases have held the power under s 5DA does not allow the court to review the sentence generally (see R v Waqa [2004] NSWCCA 405 at [26]; R v Douar [2007] NSWCCA 123 at [32]), other cases have suggested that, given s 5DA(2) empowers the court to re-sentence “as it thinks fit”, the court is not limited to merely reapplying the discount given for an unfulfilled promise to give future assistance: R v GD at [41] per Button J; R v Shahrouk at [60]–[64], distinguishing R v Waqa. However, in R v OE, Button J emphasised that R v GD was to be read “in the unusual context of that appeal; namely the failure of the sentencing judge to provide any allocation between past and future assistance”: at [61]. In that case it was unnecessary for the Court to finally determine the issue: [44].

Co-operation post sentencing

Assistance rendered after sentence is a matter for the Executive, not the courts, except (rarely) to correct an erroneous basis of sentencing: R v Moreno (unrep, 4/11/94, NSWCCA). Therefore, an offender appealing against the severity of their sentence may not seek a reduction of sentence on the ground of assistance given to authorities after the date of sentencing: Khoury v R [2011] NSWCCA 118 at [111]–[112]. The appeal court must find error before evidence of post-sentencing events, such as unanticipated assistance to authorities, may be taken into account: R v Gallagher (1991) 23 NSWLR 220; R v Willard [2001] NSWCCA 6 at [24]–[27]; Douar v R [2005] NSWCCA 455 at [126].

[9-300] Setting aside a guilty plea

Last reviewed: February 2026

Section 207 Criminal Procedure Act 1986 provides for the setting aside of a conviction after the withdrawal (or traversal) of a plea of guilty. It provides:

(1) 

An accused person may, at any time after conviction or an order has been made against the accused person and before the summary proceedings are finally disposed of, apply to the court to change the accused person’s plea from guilty to not guilty and to have the conviction or order set aside.

(2) 

The court may set aside the conviction or order made against the accused person and proceed to determine the matter on the basis of the plea of not guilty.

An accused seeking to withdraw a guilty plea after conviction must demonstrate a miscarriage of justice has occurred: R v Boag (unrep, 1/6/94, NSWCCA); White v R [2022] NSWCCA 241 at [58]. The authorities emphasise that the issue is one of the integrity of the plea by reference to the circumstances in which it was entered: Mao v DPP [2016] NSWSC 946 at [60] citing R v Sagiv (unrep, 30/5/96, NSWCCA); R v Van [2002] NSWCCA 148 at [48]–[50] and Wong v DPP [2005] NSWSC 129 at [16]; Brown Brothers v Pittwater Council (2015) 90 NSWLR 717 at [156]–[163] extensively reviews the case law.

An accused seeking to withdraw a guilty plea before conviction must demonstrate whether the interests of justice require it: White v R at [59]–[61], [68]–[69]; Maxwell v The Queen (1996) 184 CLR 501 at 531. The “interests of justice” test is broader than the “miscarriage of justice” test and may focus on matters beyond the integrity of the plea, although this will often remain the inquiry’s focal point: White v R at [65]. Chief Justice Bell, Button and N Adams JJ in White v R at [65] set out the following non-exhaustive list of factors affecting the interests of justice [case references and citations omitted]:

  • the circumstances in which the plea was given;

  • the nature and formality of the plea;

  • the importance of the role of trial by jury;

  • the time between entry of the plea and the application for its withdrawal;

  • any prejudice to the Crown from the plea’s withdrawal;

  • the complexity of the charged offence’s elements;

  • whether the accused knew all of the relevant facts intended to be relied upon by the Crown;

  • the nature and extent of legal advice to the accused before entering the plea;

  • the seriousness of the alleged offending and likely penalty;

  • the accused’s subjective circumstances;

  • any intellectual or cognitive impairment suffered by the accused;

  • any reason to suppose that the accused was not thoroughly aware of what they were doing;

  • any extraneous factors bearing on the plea when made, including threats, fraud or other impropriety;

  • any imprudent and inappropriate advice given to the accused affecting their plea;

  • the accused’s explanation for seeking to withdraw the plea;

  • any consequences to victims, witnesses or third parties that might arise from the plea’s withdrawal; and

  • whether there is a real question about the accused’s guilt.

See also Johnson J’s summary of the principles in appellate decisions governing an application to withdraw a plea of guilty in R v Wilkinson (No 4) [2009] NSWSC 323 at [41]–[48].

An application to withdraw a plea of guilty in the Local Court cannot be treated on appeal as an application for an annulment of a conviction and the District Court will fall into jurisdictional error by doing so: DPP v Arab [2009] NSWCA 75 at [39].