In South Australia the non-medical use of drugs is regulated by both State and Commonwealth legislation.
State legislation
The majority of drug offences are charged under state legislation, that is, the Controlled Substances Act 1984 (SA). This Act regulates the manufacture, production, sale, supply, possession, handling or use of certain poisons, drugs, therapeutic and other substances. It is a complex piece of legislation but it broadly distinguishes between users, who face lesser penalties, and producers or suppliers who in general face greater penalties.
The cultivation of industrial hemp is regulated under the Industrial Hemp Act 2017 (SA). A licence is required to possess, cultivate, process or supply industrial hemp for commercial production or any other purpose [s 8(1)]. Tobacco and e-cigarettes are regulated by the Tobacco and E-Cigarette Products Act 1997 (SA), as well as under other Commonwealth legislation, including the Customs Act 1901 (Cth) mentioned below.
For a comprehensive summary of offences and penalties under the Controlled Substances Act 1984 (SA) as at December 2021, click here.
Commonwealth legislation
The relevant Commonwealth legislation is contained in the Customs Act 1901(Cth), the Narcotic Drugs Act 1967 (Cth) and the Psychotropic Substances Act 1976 (Cth) . However, in daily practice only the Customs Act 1901 (Cth) is likely to be encountered. The Customs Act 1901 (Cth) is concerned with the movement and control of goods into and out of Australia and also contains many offences not related to drugs.
Under the Controlled Substances Act 1984 (SA), some (not all) offences have two types - a basic offence and an aggravated offence. Of these two types, the aggravated offence will have a higher maximum penalty. A higher penalty may also apply to offences committed by an offender classified as a serious drug offender - see Serious Drug Offenders below.
An aggravated offence is an offence where:
Controlled Substances Act 1984 (SA) s 43.
The ways in which a person may identify themselves as belonging to, or being associated with, a criminal organisation are not limited. One example is that a person will be taken to have identified themselves as belonging to or being associated with a criminal organisation if the person displayed (whether on an article of clothing, as a tattoo or otherwise) the insignia of the criminal organisation, unless the person proves that they did not display the insignia knowingly or recklessly [s 43(2)].
What is a criminal organisation?
There are three definitions of a criminal organisation [Part 3B Criminal Law Consolidation Act 1935 (SA)].
A 'serious offence of violence' involves:
(a) the death of or serious harm to a person, or a risk of the death of or serious harm to, a person; or
(b) serious damage to property in circumstances involving a risk of the death of or harm to a person; or
(c) perverting the course of justice in relation to any of the above conduct.
A serious offence is an indictable offence that is punishable by imprisonment for life or for a term of 5 years or more.
Serious Drug Offenders
Many offences in the Controlled Substances Act 1984 (SA) will contain a penalty that applies where a basic offence is committed by a serious drug offender. These penalties are higher than the ordinary basic offence penalty and are often the same as the penalties that apply to aggravated offences.
A serious drug offender is an offender who has, within 10 years of the commission of the offence, previously been convicted of:
See Controlled Substances Act 1984 (SA) s 4(7a).
What is a ‘simple’ cannabis offence?
A simple cannabis offence applies to offences of possessing up to 100 grams of cannabis, or 20 grams of cannabis resin, or smoking cannabis in private, or possessing equipment (for example, pipes, bongs) or cultivating not more than 1 cannabis plant [Controlled Substances Act 1984 (SA) s 45A].
Cannabis Expiation Notice
Where a person commits a ‘simple’ cannabis offence they may be issued with a Cannabis Expiation Notice by the police rather than a summons to attend court [see s 45A(2)]. This requires payment of an ‘on the spot’ fine and allows an individual to avoid prosecution in court.
The expiation notice must be given to the alleged offender stating that the offence may be expiated by payment to the Commissioner of Police of the prescribed expiation fee before the expiration of 28 days from the date of the notice. The notice may be given personally to the alleged offender or posted to his or her last known place of residence.
No prosecution for expiated offences
Where the offence is expiated (that is, the fee paid within time) no prosecution for the offence shall proceed. In addition, the payment of an expiation fee will not be regarded as an admission of guilt [Expiation of Offences Act 1996 (SA) s 15(4)]. If the amount of the expiation notice is not paid enforcement proceedings may be undertaken, or the expiation notice may be withdrawn and a summons to attend court may be issued [s 16(1)(b)]. If the offence is expiated, any substance and equipment may also be forfeited [s 15(5)].
Reminder notice
If an expiation notice is not paid, an expiation reminder notice is issued and a reminder fee is added to the amount owing [s 11]. Enforcement proceedings will be taken by the Fines Enforcement and Recovery Unit to recover the amount and enforcement costs [see The Sentencing process]. The matter would not normally go to court unless the offence is disputed.
Prosecution only after expiation notice issued
A prosecution in court for a 'simple cannabis offences' can only be commenced after the person has been given an expiation notice [Controlled Substances Act 1984 (SA) s 45A(2)]. In the event that a summons is issued instead, then the court hearing should be adjourned to enable the Police to give the person the opportunity of being served with an expiation notice and expiating the offence. This is desirable as, if the matter is expiated, no criminal record results.
Hydroponically grown cannabis excluded
Cannabis grown hydroponically is specifically excluded from the Cannabis Expiation Notice scheme [Controlled Substances Act 1984 (SA) s 45A(8)].
Possession in a public place
An offence for smoking in a public place may not be dealt with in this way [see s 45A(8)(c)(i)]. Regulation 15 of the Controlled Substances (Controlled Drugs, Precursors and Plants) Regulations 2014 (SA) says that this includes smoking in a motor vehicle or in public transport which is in a public place. People who get caught smoking cannabis in hotel car parks and similar public places may be prosecuted and convicted in court [see Controlled Substances Act 1984 (SA) s 45A(8)(c)].
Commercial purpose attracts higher penalties
If there is any suggestion that the possession or cultivation of less than the prescribed amount is for a 'commercial purpose', then the offence attracts greater penalties.
Higher penalty even for own use if quantity exceeds 1 plant
Where a person is found guilty of cultivating between 2-5 plants, the maximum penalty in such cases is $2 000 or 2 years imprisonment, or both [s 33K(2)]. When the number of plants is over 5 but under 10, the maximum penalty is 2 years imprisonment and/or a fine of $2000 [Controlled Substances Act 1984 (SA) s 33K(1)(a)(ii)]. However for an aggravated offence, or a basic offence where the offender is a serious drug offender, the maximum penalty increases to a fine of up to $5 000 and/or imprisonment for 5 years [ss 33K(1)(a)(i); 33K(1)(b)]. If a person is able to prove that the plants were for personal use or supply and not sale, regardless of the number, then this penalty will also apply. However, this would be difficult with large numbers of plants.
| Offence | Expiation fee |
| Less than 25 grams of cannabis | $250 |
| Between 25 and 100 grams of cannabis | $400 |
| Less than 5 grams of resin | $250 |
| Between 5 and 20 grams of resin | $400 |
| For smoking or consumption in private | $250 |
| For pipes or other equipment (provided it is not for commercial purposes) | $250 |
| For pipes or other equipment (if there are other offences) | $130 |
| Non-commercial cultivation (1 plant only, but not hydroponically cultivated) | $400 |
[Expiation fees set out in Schedule 5 of the Controlled Substances (Controlled Drugs, Precursors and Plants) Regulations 2014 (SA)]
More serious charges likely if evidence of sale or supply
If a person has no drugs, or only a small amount, but there is evidence that the person has sold or supplied drugs (even sharing with a friend), the person will face a more serious charge and will have to appear in court. The penalties for sale are more severe than for supply.
Possession of cannabis or a controlled drug
Under s 33L of the Controlled Substances Act 1984 (SA) it is an offence for a person to:
This is often referred to as a simple possession offence.
Maximum penalty:
For simple possession offences involving there is a police drug diversion program available. The program diverts individuals away from the criminal justice system into treatment and education and provides an opportunity to avoid prosecution in court, see Diversionary schemes.
Whether or not a person is guilty of a simple possession/use charge or a more serious charge of trafficking, manufacturing, cultivation, sale or supply will depend partly on the amount of the drug involved.
Presumption of sale or supply
Possession of more than a certain amount of a drug or substance will lead to a presumption that it is for sale or supply and take the offence out of this penalty range.
Possession of a controlled precursor
It is an offence to possess, or to supply, or to possess intending to supply, a prescribed amount of a controlled precursor [Controlled Substances Act 1984 (SA) s 33LB].
Maximum penalty: $15 000 or 3 years imprisonment or both [s 33LB(1)(a)(ii)]. Where the offender is a serious drug offender, or the offence is an aggravated offence, the maximum penalty increases to a fine of up to $20 000, or imprisonment for 5 years, or both [s 33LB(1)(a)(i); s 33LB(1)(b)].
The maximum penalty increases if, in addition, the person also possesses, supplies, or possesses with intention to supply another kind of controlled precursor or any prescribed equipment: $20 000 or 5 years imprisonment, or both [s 33LB(2)(a)(ii)]. Where the offender is a serious drug offender, or the offence is an aggravated offence, the maximum penalty is a fine of up to 430 000, or imprisonment for 7 years, or both [see ss 33LB(2)(a)(i); ss 33LB(2)(b)].
Prescribed equipment includes [Controlled Substances (Controlled Drugs, Precursors and Plants) Regulations 2014 (SA) reg 9]:
Possession is defined in section 4 of the Controlled Substances Act 1984 (SA) as including having 'control over the disposition of the substance or thing' as well as 'having joint possession of the substance or thing'.
Intending to control the disposition of substances in another person's custody will also imply possession.
Elements of possession
Possession, incudes two elements:
Both elements must exist before a person can be found guilty.
See section 4 of the Controlled Substances Act 1984 (SA) for definition of possession.
What is physical control?
Physical control requires custody; and control; or the ability to exercise control over the goods at will, including control over their disposition.
A person will usually have possession of a drug if it is found in that person's pocket or hand or bedroom, where the person alone has access to it. However, as control also includes disposition this can include anything from throwing the substance away, to never actually having had physical possession but possessing the ability to say where the substance should be placed.
A person possessing a container is usually assumed to be in possession of its contents although this can be challenged if the person was mistaken about its contents.
Joint possession with another or others is also now specifically covered under the Controlled Substances Act 1984 (SA) definition [s 4]. This might be the case if for example, the substance is found in a car with a group of people and they all have control of the substance.
Possession is not necessarily the same as ownership
Possession is not necessarily the same as ownership, although ownership often can be used to show possession. Possession will depend on the circumstances of each case. For example, where a drug is found in a communal part of premises, (where people come and go), the prosecution will have difficulty in proving precisely who is in possession of the drug. However, prosecution can charge people together and allege that they were in joint possession of the drug.
[See further a key case on possession and controlled substances: Bourne v Samuels (1979) SASR 591]
Knowledge
To be guilty of possession the defendant must be shown to have known two things:
Even where the defendant did not know precisely what the drug was, if it can be shown that he or she knew that the substance was an illicit one this will be sufficient to establish the offence. It may be possible to draw the conclusion that a person had this knowledge from the circumstances surrounding the offence.
It is not necessary to have actual knowledge that a substance is illicit or prohibited, it can be enough that the defendant was aware of the likelihood that a concealed substance was a prohibited drug.
Defence of honest and reasonable mistake
It is a defence to prove an honest and reasonable mistake about the nature of the substance possessed.
Intention
To be guilty of possession a person must also intend to exercise control over the drug, as well as being in a position to do so.
For example, if a person has drugs in her or his room, someone else who knows they are there, but does not intend to exercise any control over the drugs, does not possess them.
It is not an offence simply to be close to drugs, or to know where the drugs are, without also having an intention to possess them.
In addition to user offences, there are a range of offences relating to the manufacture, cultivation and sale of controlled drugs, plants or precursors.
Under the Controlled Substances Act 1984 (SA), it is an offence to:
Precursors are certain defined substances that are used in the manufacturing process to make controlled drugs [see the Controlled Substances (Controlled Drugs, Precursors and Plants) Regulations 2014 (SA)].
Penalties in relation to controlled drugs
There is a distinction that affects the penalty between large commercial quantity and commercial quantity of a controlled drug.
Large Commercial Quantities
Offences involving large commercial quantities attract a maximum fine of $1,000,000 and/or life imprisonment. (This offence does not have an 'aggravated offence' type.) [Controlled Substances Act 1984 (SA) s 33(1).]
Commercial Quantities
Offences involving commercial quantities attract a maximum fine of $200,000 and/or 25 years imprisonment [s 33(2)(a)(ii)].
Aggravated offences of manufacturing controlled drugs involving commercial quantities, or a basic offence where the offender is a serious drug offender, attract a maximum fine of $500 000 and/or life imprisonment [ss 33(2)(a)(i); 33(2)(b)].
Less than commercial quantities
If the quantity of drug is lower than the commercial quantity, then the penalty for a basic offence is a maximum fine of $50,000 and/or imprisonment for 10 years [s 33(3)(a)(ii)].
The penalty for an aggravated offence, or an offence where the offender is a serious drug offender, is a maximum fine of $75,000 and/or imprisonment for 15 years [ss 33(3)(a)(i), 33(3)(b)].
For example:
Controlled Drug |
Large Commercial Quantity |
Commercial Quantity |
MDMA |
0.75kg (pure) / 1kg (mixed) |
0.1kg (pure) / 0.5kg (mixed) |
Cannabis |
2kg (pure) / 12.5kg (mixed) |
1kg (pure) / 2.5kg (mixed) |
Heroin |
0.75kg (pure) / 1kg (mixed) |
0.1kg (pure) / 0.2kg (mixed) |
LSD |
0.015 kg |
0.005 kg |
For these and other quantities see the Controlled Substances (Controlled Drugs, Precursors and Plants) Regulations 2014 (SA). From 29 September 2022, but applying retrospectively, where there is no prescribed quantity of a drug or precursor in its pure form, the quantity of the mixed form will apply [Controlled Substances (Pure Amounts) Amendment Act 2022].
Further definition of manufacture, cultivation and sale
Persons take part in manufacture, cultivation or sale if they:
All of these actions are punished in the same way as the manufacture, cultivation or sale offences.
Penalties in relation to controlled precursors
The penalties for selling or manufacturing controlled precursors (the chemicals needed to make some controlled drugs) are also dependant on the amount of precursor involved.
Basic offences involving large commercial quantities attract a maximum fine of $200,000 and/or imprisonment for 25 years [s 33A(1)(a)(ii)]. Aggravated offences of manufacturing precursors involving large commercial quantities, or a basic offence where the offender is a serious drug offender, attract a maximum fine of $500,000 and/or imprisonment for life [ss 33A(1)(a)(i), s 33A(1)(b)].
Basic offences involving commercial quantities attract a maximum fine of $75,000 and/or imprisonment for 15 years [s 33A(2)(a)(ii)]. Aggravated offences involving commercial quantities of precursors, or a basic offence where the offender is a serious drug offender, attract a maximum fine of $200,000 and/or imprisonment for 25 years [ss 33A(2)(a)(i), 33A(2)(b)].
Any amounts below these for a basic offence attract the maximum penalty of $50,000 and/or imprisonment of 10 years [see ss 33A(3)(a)(ii); s 33A(4)(a)(ii); 33A(5)(a)(ii)]. For an aggravated offence, or a basic offence where the offender is a serious drug offender, a maximum penalty of $75,000 and/or imprisonment of 15 years applies [see ss 33A(3)(a)(i); 33A(3)(b); 33A(4)(a)(i); 33A(4)(b); 33A(5)(b)].
Cultivation of Controlled Plants for Sale
A person can be charged with cultivating plants for sale, and the penalty will depend on the quantity of plants.
A person who cultivates a large commercial quantity of a controlled plant with the intention to sell them or their products is guilty of an offence [s 33B(1)].
Maximum penalty: a fine of up to $1,000,000 or imprisonment for life, or both [s 33B(1)].
The maximum penalty for cultivating a commercial quantity of a controlled plant with the intention to sell them or their product is a fine of up to $200 000, or imprisonment for 25 years, or both [33B(2)(a)(ii)]. For an aggravated offence, or a basic offence where the offender is a serious drug offender, a maximum penalty of a fine of up to $500,000, and/or imprisonment for life [s 33B(2)(a)(i); 33B(2)(b)].
A person who cultivates a non commercial quantity of a controlled plant for sale will face a fine of up to $50 000 and/or imprisonment for 10 years [s 33B(3)(a)(i)]. For an aggravated offence, or a basic offence where the offenders is a serious drug offender, the maximum penalty is a fine of up to $75,000 and/or imprisonment for 15 years [ss 33B(3)(a)(i); 33B(3)(b)].
Sale of Controlled Plants
The actual sale of controlled plants also constitutes an offence and the penalty will differ depending on the quantity of controlled plants for sale.
A person who sells, or intends to sell, a large commercial quantity of controlled plants is guilty of an offence [s 33C(1)].
Maximum penalty: a fine of up to $100,000 or imprisonment for life, or both [s 33C(1)].
The maximum penalty for a basic offence of selling, or intending to sell, a commercial quantity of controlled plants is a fine of up to $200 000 and/or imprisonment for 25 years [s 33C(2)(a)(ii)]. For an aggravated offence, or a basic offence where the offenders is a serious drug offender, the maximum penalty is a fine of up to $500,000 and/or imprisonment for life [ss 33C(2)(a)(i); 33C(2)(b)].
A person who sells a non-commercial quantity of controlled plants will face a maximum penalty of a fine of up to $50,000 and/or imprisonment for 10 years [s 33C(3)(a)(ii)]. For an aggravated offence, or a basic offence where the offender is a serious drug offender, the maximum penalty is a fine of up to $75,000 and/or imprisonment for 15 years [ss 33C(3)(a)(i); 33C(3)(b)].
Trafficable quantity
A person in possession of more than a prescribed quantity (trafficable quantity) of a drug is assumed to have it to sell unless the person can prove it is for personal use only [Controlled Substances Act 1984 (SA) s 32(5)].
The limits for commonly encountered substances are as follows:
| Prohibited drug | Trafficable quantity |
| cannabis | 250 grams |
| cannabis resin (hashish) | 25 grams |
| cannabis oil | 25 grams |
| cocaine | 2 grams |
| heroin | 2 grams |
| LSD | 0.015 grams |
| some forms of amphetamines | 2 grams |
| MDMA | 2 grams |
| opium | 30 grams |
See these and other quantities in the Controlled Substances (Controlled Drugs, Precursors and Plants) Regulations 2014 (SA).
Ephedrine (sometimes sold as amphetamine) is not prohibited by this section but see: additional offences. It is however considered to be a precursor.
Presumption of sale
This assumes that anyone possessing more than a trafficable quantity is going to distribute it and not consume it all. However, the quantities are small and bear no relationship to the realities of narcotics addiction (the quantity for heroin is only 2 grams) or the yield of a cannabis plant (the quantity for cannabis is 250 grams).
Additional evidence of sale
Possession of items such as scales, sandwich bags, cash and separately packed quantities of drugs are regarded as additional evidence of selling or supplying. The 'deeming quantities' of drugs that bring this presumption into operation are, for practical purposes, the same as trafficable quantities as defined under the Customs Act 1901 (Cth).
Ordinary users, supply deeming provisions and sale
There are separate offences of supplying someone with a controlled drug and supplying someone with cannabis, with lesser penalties than those for trafficking or sale [Controlled Substances Act 1984 (SA) s 33I]. However, if the amount is over the deeming provision, then it is up to the person charged to prove this, as they will still be presumed to be selling.
Maximum penalty for a basic offence (other than cannabis): a fine of up to $50 000 or 10 years imprisonment, or both [s 33I(a)(ii)]. For an aggravated offence, or a basic offence where the offender is a serious drug offender, the penalty increases to a fine of up to $75 000 or 15 years imprisonment, or both [ss 33I(a)(i); 33I(b)].
Maximum penalty for supply and/or administration of cannabis: a fine of up to $15 000 or imprisonment for 3 years, or both [s 33I(2)].
For example, one heroin user who buys the drug for them and a friend, injects a friend or helps a friend to self inject is will be subject to the offence of supply, if the amount is under the deeming provision. If the amount is over the deeming provision, they will be charged with possession for sale, and will need to prove that it was for supply, not sale. Past experience suggests that to share a cannabis cigarette does not mean the provider is a supplier, but any suggestion that another person was to share in future use of the drug may put the person then in possession at risk of a supply charge.
A person who manufactures a controlled drug (without an intention of sale) is guilty of an offence [Controlled Substances Act 1984 (SA) s 33J(1)].
Maximum penalty for a basic offence: a fine of up to $30 000 or imprisonment for 7 years, or both [s 33J(1)(a)(ii)]. For an aggravated offence, or a basic offence where the offender is a serious drug offender, the penalty increases to a fine of up to $75 000 or imprisonment for 15 years, or both [ss 33J(1)(a)(i); 33J(1)(b)].
It is also an offence to have possession of a controlled precursor or any prescribed equipment with the intention of using it to manufacture a controlled drug [s 33J(2)].
Maximum penalty for a basic offence: a fine of up to $20 000 or imprisonment for 5 years, or both [s 33J(2)(a)(ii)]. For an aggravated offence, or a basic offence where the offender is a serious drug offender, the penalty increases to a fine of up to $30 000 or imprisonment for 7 years, or both [ss 33J(2)(a)(i); 33J(2)(b)].
Possession of equipment in relation to cannabis use or preparation
Maximum penalty: $2 000 [Controlled Substances Act 1984 (SA) s 33L(2)(c)].
Possession of equipment in relation to controlled drug use or preparation
Maximum penalty: $2 000 or 2 years imprisonment or both [s 33L(1)(c)].
Possession of prescribed equipment
Prescribed equipment includes [Controlled Substances (Controlled Drugs, Precursors and Plants) Regulations 2014 (SA) reg 9 ; Controlled Substances Act 1984 (SA) s 33LAB]:
Under the Controlled Substances Act 1984 (SA) [s 33LA] it is an offence to:
Maximum penalty for a basic offence is a fine of up to $10 000 or imprisonment for 2 years, or both [s 33LA(1)(a)(ii)]. The penalty for an aggravated offence, or a basic offence where the offender is a serious drug offender increases to a fine of up to $20 000 or imprisonment for 5 years, or both [ss 33LA(a)(i); s 33LA(b)].
Defence: it is a defence if the person had a reasonable excuse to have the equipment. It is up to the person to show they had a reasonable excuse.
Possession of both equipment and precursors
Possession of equipment used to manufacture controlled drugs as well as possession of controlled precursors (chemicals used to make drugs) is an offence [s 33LB].
Maximum penalty for a basic offence is a fine of up to $20 000 or imprisonment for 5 years, or both [s 33LB(2)(a)(ii)]. The maximum penalty increases to a fine of up to $30 000 or imprisonment for 7 years, or both, for an aggravated offence or a basic offence where the offender is a serious drug offender [see ss 33LB(2)(a)(i); s 33LB(2)(b)].
Sale of equipment
Under the Controlled Substances Act 1984 (SA) [s 33D] it is an offence to:
Maximum penalty for a basic offence is a fine of up to $15 000 or imprisonment for 3 years, or both [s 33D(a)(ii)]. For an aggravated offence, or a basic offence where the offender is a serious drug offender, the maximum penalty increases to a fine of up to $20 000 or 5 years imprisonment, or both [see ss 33D(a)(i); 33D(b)].
Sale of equipment to a child for use in connection with consumption of controlled drugs (and possession with intent to sell)
Under the Controlled Substances Act 1984 (SA) section 33GA it is an offence to:
Maximum penalty for a basic offence is a fine of up to $20 000 or imprisonment for 5 years, or both [s33GA(a)(ii)]. For an aggravated offence, or a basic offence where the offender is a serious drug offender, the maximum penalty is a fine of up to $30 000 or imprisonment for 7 years, or both [see ss 33GA(a)(i); s 33GA(b)].
Sale or supply of drug paraphernalia
Under section 9B Summary Offences Act 1953 (SA) it is an offence to sell or supply drug paraphernalia. Penalties apply to individuals and also to businesses and there are separate penalties where the sale or supply has been to a minor.
Maximum penalty for sale or supply of prohibited item:
Maximum penalty for sale or supply of prohibited item to a minor:
The list of prohibited items includes the following:
A cocaine kit consists of 2 or more of the following items packaged as a unit apparently for the use of cocaine:
Sale of instructions (and possession with intent to sell)
Under the Controlled Substances Act 1984 (SA) [s 33DA] it is an offence to sell, or possess intending to sell, a document containing instructions for the manufacture of a controlled drug or the cultivation of a controlled plant.
Maximum penalty (basic offence): $15 000 or imprisonment for 3 years, or both [s 33DA(a)(ii)]. For an aggravated offence, or a basic offence where the offender is a serious drug offender, the penalty increases to a fine of up to $20 000 or 5 years imprisonment, or both [see ss 33DA(a)(i); s 33DA(b)].
Defence: it is a defence if the person had a reasonable excuse to sell or have the instructions. It is up to the person to show they had a reasonable excuse.
Sale of instructions to a child
Under the Controlled Substances Act 1984 (SA) [s 33GB] it is an offence to sell to a child, or possess intending to sell to a child, a document containing instructions for the manufacture of a controlled drug or the cultivation of a controlled plant.
Maximum penalty (basic offence): $20 000 or imprisonment for 5 years, or both [s 33GB(a)(ii)]. For an aggravated offence, or a basic offence where the offender is a serious drug offender, the penalty increases to a fine of up to $30 000 or 7 years imprisonment, or both [see ss 33GB(a)(i); s 33GB(b)].
Defence: it is a defence if the person had a reasonable excuse to sell or have the instructions. It is up to the person to show they had a reasonable excuse.
Possession or supply of instructions
Under the Controlled Substances Act 1984 (SA) [s 33LAB] it is an offence to possess, supply, or possess intending to supply, a document containing instructions for the manufacture of a controlled drug or the cultivation of a controlled plant.
Maximum penalty for a basic offence is a fine of up to $10 000 or imprisonment for 2 years, or both [s 33LAB(a)(ii)]. For an aggravated offence, or a basic offence where the offender is a serious drug offender, the penalty increases to a fine of up to $20 000 or imprisonment for 5 years, or both [see ss 33LAB(a)(i); s 33LAB(b)].
Note: 'document' includes any record of information in whatever form, including magnetic or electronic [s 33LAB(2)].
The following are offences under the Controlled Substances Act 1984 (SA):
These sections concern substances which either have, or were intended to have, or are promoted as having, pharmacological effects similar to a controlled drug. They are also about substances which are promoted as legal alternatives to a controlled drug, or are sold as controlled drugs but are actually different substances.
Under these sections, manufacturing includes taking part in the process. Taking part in a step in the process is broadly defined and includes things such as: getting together or hiding equipment, substances or materials; arranging or providing money to fund any part of the process; transporting and loading materials; and allowing a house to be used for the process [see further s 33LC(1)-(3)].
These offences can be committed even if the substance is marked ‘not for human consumption’, or similar labelling such as stating that it is not an alternative to a controlled drug [s 33LC(4)].
The Court can prohibit someone from running a business if they have been convicted of committing any of these offences in the course of running a business. The Court can also make other orders that it thinks is appropriate [see further s 33T].
Penalties:
The penalty structure for trafficking [section 32 Controlled Substances Act 1984 (SA)] a controlled drug depends on the quantity of the drug. The higher the amount of the drug the higher the penalty. From 29 September 2022, but applying retrospectively, where there is no prescribed quantity of a drug or precursor in its pure form, the quantity of the mixed form will apply [Controlled Substances (Pure Amounts) Amendment Act 2022 (SA)].
Large Commercial Quantities
Offences involving large commercial quantities attract a maximum fine of $1 000 000 and/or life imprisonment [s 32(1)].
Commercial Quantities
Basic offences involving commercial quantities attract a maximum fine of $200 000 and/or 25 years imprisonment [s 32(a)(ii)]. Aggravated offences or a basic offence where the offender is a serious drug offender: $500 000 or imprisonment for life, or both [ss 32(2)(a)(i); 32(2)(b)].
Less than commercial quantities
If the quantity of drug is lower than the commercial quantity, then the penalty for a basic offence is a maximum fine of $50 000 and/or imprisonment for 10 years, or both [s 32(3)(a)(ii)].
Aggravated offences or a basic offence where the offender is a serious drug offender: $75 000 or imprisonment for 15 years, or both [ss 32(3)(a)(i); 32(3)(b)].
Trafficking in a prescribed area
A person convicted of trafficking controlled drugs in a prescribed area faces heavy penalties. A prescribed area includes:
Maximum penalty for a basic offence: $75 000 or imprisonment for 15 years, or both [s 32(2a)(a)(ii)];
Aggravated offence or a basic offence where the offender is a serious drug offender: $200 000 or imprisonment for 25 years, or both [s 32(2a)(a)(i); 32(2a)(b)].
See also the Duty Solicitor Handbook's section on Trafficking in Controlled Drugs.
Penalties imposed vary depending on all the circumstances.
The penalties that have been stated earlier in this section are the maximum possible penalties. The actual penalty that may be imposed will vary widely, depending on all of the circumstances.
When determining what penalty to impose a court must consider [Controlled Substances Act 1984 (SA) s 44]:
High penalties imposed for commercial offences
The Supreme Court of South Australia has reiterated its determination to maintain high penalties for drug offences of a commercial nature to deter people who are tempted to engage in these activities.
In R v Mangelsdorf, R v Perry and R v Richards (1995) 66 SASR 60, the Court of Criminal Appeal heard and upheld three simultaneous appeals by the Director of Public Prosecutions against inadequate sentences imposed in lower courts.
Mangelsdorf was a 32 year old 'street trader' found in possession of fifteen 'tastes' of heroin who admitted selling 'tastes' for about 2 months to finance his own addiction. Notwithstanding a previous 'clean' record and good prospects for rehabilitation a suspended term of imprisonment was increased to 4 years, with a non-parole period of 18 months, unsuspended.
Perry was a 20 year old without previous convictions. Following intercepts of phone conversations he was convicted of conspiring to trade in LSD. He had a 'clean' record, and a number of other personal factors in his favour. He received a 2 years 6 months suspended term of imprisonment with an order that he perform community service work.
Richards was originally given a suspended sentence for possession of about 8 kg of cannabis and 80 g of cannabis resin for purpose of sale. This was increased to four years imprisonment, with a minimum of two years to serve.
In South Australia, initiatives have been developed to assist drug users to break the cycle of drug abuse and crime.
Simple possession offences can be dealt with by way of a drug diversion, referred to as the Police Drug Diversion Initiative (PDDI). This scheme enables eligible people to be diverted by the Police to the health system for simple possession offences, instead of being dealt with through the justice system. See below for more information.
Additionally, there are treatment schemes which operate through the Treatment Intervention Court in the Magistrates Court (formerly the Drug Court and the Magistrates Court Diversion Program). This allows eligible offenders who have been charged with drug related offences to access treatment schemes through a Court process.
Aside from these two initiates, Police also have the ability to issue an expiation notice for simple cannabis related offences. This allows the offender to expiate the matter instead of it proceeding to a court hearing, see Simple Cannabis Offences.As simple cannabis offences are dealt with by way of expiation, they are excluded from the scope of the Police Drug Diversion Initiative.
Police Drug Diversion Initiative (PDDI)
The Controlled Substance Act 1984 (SA) [ss 34 - 40A] provides a scheme of rehabilitation for suitable offenders charged with simple possession of drugs of dependence (except simple cannabis offences, as these are dealt with by way of expiation). The diversion scheme is restricted to drug offences and is not available for non-drug offences, even where drug use is a significant component of the offending. The scheme does not apply to:
See Controlled Substances Act 1984 (SA) s 34(1).
A serious drug offence means an offence against Part 5, Division 2 (other than Subdivision 4), Division 3, Division 4 (other than section 33I(2), 33K or 33L) or Division 4A [see s 34(2)].
The police must refer allegations of simple possession of defined amounts of drugs of dependence to an assessment service [Controlled Substances Act 1984 (SA) s 36]. Drug and Alcohol Services SA (DASSA) is currently responsible for the statewide coordination of the PDDI program in South Australia, and a number of service providers are accredited to provide drug assessment and treatment services.
Referral to a Drug Assessment and Treatment Service operates as stay of proceedings
The referral pauses a prosecution for the alleged offence (it operates as a stay of proceedings) [s 36(3)].
A prosecution for a simple possession offence cannot proceed unless the referral has been terminated by the service [s 40].
In order to carry out its assessment, the drug assessment or treatment service may request medical records, drug treatment records, criminal records, etc or require the person to undergo a medical examination [s 37(2)].
A referral may be may terminated if a person fails to comply, does not admit allegations or does not wish to participate in the program [s 37(3)]. In this case the prosecution for the simple possession offence can proceed in court.
Undertaking by person on completion assessment
After an assessment, a person enters into an undertaking similar to a bond for a period of up to six months, involving participation in treatment programs, counselling courses. Those under the age of 18 years are excluded from this scheme. If a person undertakes treatment or rehabilitation, the criminal charges are withdrawn [s 38(3)(b)].
Participation not an admission of guilt
The fact that a person alleged to have committed a simple possession offence participates in an assessment or enters into an undertaking is not an admission of guilt [s 40(2)].
On successful completion of an undertaking, the person is immune from prosecution [s 40(4)].
Anything said or done by a person doing an assessment or undertaking is not admissible evidence in any proceedings for the alleged offence [s 40(3)].
More than two diversions in four years
A person is not eligible to participate in the drug diversion scheme where they have:
There is therefore a limit on a person accessing the diversion scheme where they have had 2 diversions in a 4 year period.
See Controlled Substances Act 1984 (SA) s 34(1)(c).
Treatment Intervention Court
The Treatment Intervention Court (formerly known as the Drug Court or the Drug Diversion Program) supervises eligible offenders who appear in either the Magistrates Court or the Youth Court and whose offending is related to mental impairment and/or drug dependence issues. The Treatment Intervention Court allows for such offenders to participate in programs that assist with their drug dependency. Two treatment streams relating to drug offending are offered through the Treatment Intervention Court – both of which are highly supervised and involve intensive drug treatment. Other streams apply to offenders with mental impairments. The two streams applying to drug offending are:
Six Month Stream
This stream involves the following program of treatment and intervention:
The Treatment Intervention Program - 6 month stream operates at all metropolitan Magistrates Courts – Adelaide, Christies Beach, Elizabeth, Port Adelaide. It also operates in the Youth Court.
12 Month Stream (formerly the Drug Court Program)
This stream is only available at the Adelaide Magistrates Court and involves the following intensive program of treatment and intervention:
The 12 month program operates on a points system, where points are incurred for minor non-compliance and a Magistrate has the ability to apply sanctions for non-compliance, which could include bail revocation or a imposing a period of incarceration where the non-compliance is severe. The points system allows for a defendant's progress to be tracked and allows for an assessment of whether they have successfully completed the program.
Treatment Options
For a defendant participating in either a 6 month or 12 month program, a number of treatment options may be available to them depending on what the court determines to be appropriate. Treatment options can include:
Eligibility criteria
To be eligible for participation in a treatment intervention program (either 6 or 12 month stream), a defendant:
Referral
Referral to the Treatment Intervention Court can be through Magistrate, a legal practitioner or police charging sergeant. It is usually made by a court application upon entering a guilty plea. The Magistrate will then list the matter in the Treatment Intervention Court list after which time an assessment and report will be ordered to determine the defendant's suitability in participating in the program. If a defendant is appearing in a suburban court and there is a possibility they may be eligible for participation in the 12 month stream, the matter will be transferred to the Adelaide Magistrates Court for assessment. Where a defendant is assessed as not being eligible for participation in either stream, their matter will return to the general list.
Successful completion
To achieve successful completion of a treatment program, a defendant must:
Persistent non-compliance with the requirements of the program may result in a recommendation that participation in the program cease.
Youth Court Treatment Intervention Court
The 6 month Treatment Intervention Program stream also operates in the Youth Court.
The Youth Court Treatment Intervention Program commenced in 2011 and replaced the former Youth Court Assessment and Referral Drug Scheme (Youth CARDS) and the former Youth Court Diversion Program (YCDP).
Eligible defendants appearing in the Youth Court are able to access the 6 month Treatment Intervention stream. Young people who may not be eligible for a referral for a Family Conference due to the nature of their offending are targeted for referral to this stream. Treatment services are usually provided by private psychologists.
Port Adelaide Nunga Court Program
A specialised 6 month treatment intervention program operates in the Port Adelaide Nunga Court. Eligible defendants may defer sentencing for a period of 6 months to enable their participation in the program.
More information on the Treatment Intervention Court can be located via the Courts Administration Authority - Treatment Intervention Court website.
From 1 July 2024, vapes (also known as e-cigarettes) sold across Australia, whether or not they contain nicotine, may only be sold in a pharmacy [Therapeutic Goods and Other Legislation Amendment (Vaping Reforms) Act 2024 (Cth)].
Between 1 July and 30 September 2024, a prescription from a doctor or nurse practitioner was required to purchase a vape containing nicotine in Australia. From 1 October 2024, people 18 years and older no longer need a prescription to buy a nicotine vape but those under the age of 18 do. In South Australia, it is an offence to sell or supply a tobacco product or a vape product to a person under 18 years [Tobacco and E-Cigarette Products Act 1997 (SA) s 38A]. An exemption has been granted to allow the sale or supply of a product containing nicotine to a person under 18 with a prescription by a medical practitioner or pharmacist.
The Tobacco and E-Cigarette Products Act 1997 (SA) otherwise regulates tobacco and vape products generally in South Australia.
In order to counter the illicit trade of tobacco there are prohibitions on:
The maximum penalty for the above offences is a fine of $50,000.
It is an offence for a person to have, without lawful excuse, possession of prescribed tobacco products for the purposes of sale [s 33]. Prescribed tobacco products include those prohibited under the Customs Act 1901 (Cth) or those that do not comply with the prescribed packaging requirements. If a person is in possession of a prescribed quantity of prescribed tobacco products, it is presumed, in the absence of proof to the contrary, that the person has possession for the purposes of sale. The maximum penalty for the offence is a fine of $50,000.
Smoking or vaping in a public place
Under the Tobacco and E-Cigarette Products Act 1997 (SA) and the Tobacco and E-Cigarette Products Regulations 2019 (SA), it is an offence to smoke cigarettes or vape in:
From 1 March 2024, pursuant to the Tobacco and E-Cigarette Products Regulations 2019 (SA), it is also an offence to smoke or vape in the public areas of the following locations:
A ban on smoking or vaping within the public areas of residential aged care facilities and within 10 metres of their boundaries will commence operation one year later, on 1 March 2025 [reg 20].
If caught smoking or vaping in a smoke-free or vape-free public area, the police may:
As at 1 March 2024, the maximum fine is $750 and the expiation fee is $105.
It is also an offence for the occupier of a smoke-free and vape-free public area to display insufficient signage indicating the ban on smoking and vaping [s 52(4)].
For more information about smoking and vaping in a public place, visit clearingtheair.sa.gov.au.
Police powers under the Controlled Substances Act 1984 (SA)
The Controlled Substances Act 1984 (SA) gives broad powers to the police and other people to investigate offences under the Act including the power to:
See Part 7 Controlled Substances Act 1984 (SA).
Warrant required to enter premises
Before a premises can be entered or broken into a warrant must be obtained from an approved police officer, justice of the peace or special magistrate, who must be satisfied that there are reasonable grounds for suspecting that an offence against the Act has been, is being, or is about to be, committed and that a warrant is reasonably required in the circumstances [ see further s 52(4) Controlled Substances Act 1984 (SA)].
General police powers
General police powers to search and enter are authorised by the Summary Offences Act 1953 (SA) and remain unaltered by the Controlled Substances Act 1984 (SA) , see arrest and questioning. Generally, a person must be arrested before she or he can be searched [ Summary Offences Act 1953 (SA) s 81]. However, police may search people withoutarresting them if the police have a reasonable belief that they are in possession of any substance or equipment in contravention of the Controlled Substances Act 1984 (SA). A person can insist on being taken before a magistrate to have the search authorised but as there is no obligation on a police officer to inform the person of this right it is rarely invoked. As a consequence, street searches for pipes and cannabis are common.
Drug detection dogs and electronic drug detection devices
Police can use drug detection dogs (or ‘sniffer’ dogs) or electronic drug detection systems in certain areas including:
Orders for forfeiture
As well as the power to fine and imprison, courts have the power under the Criminal Assets Confiscation Act 2005 (SA) to order the forfeiture of articles involved in the offences (for example, drugs or pipes), property acquired for the purpose of committing the offence (for example, land to grow cannabis commercially, equipment to irrigate, trucks to transport) or the proceeds or profits from the offence. If a serious drug offence has occurred (such as trade), or a person has become a prescribed drug offender, then any tainted property may be forfeited or restrained.
Assets may be forfeited if acquired with proceeds of offence
Assets may also be taken if they have been acquired from the proceeds of an offence. Where it is not possible to tell the extent of the contribution from the proceeds of offences, the whole of the tainted property can be forfeited. Where an innocent person has an interest in the same property the court may order that the person be compensated. Property (such as the family home or car) might not be forfeited if it would cause disproportionate hardship to innocent people. The court might also allow access to restrained funds for payment of reasonable legal costs.
Power to freeze assets
Even before a person is convicted of an offence, courts have the power to prevent any disposal or dealing in the property which is reasonably suspected of being liable to forfeiture, until the question of forfeiture is decided (a restraining order) [Criminal Assets Confiscation Act 2005 (SA) s 24].
Disposing of property the subject of an order a further offence
Any attempt to then dispose of the property is an offence which is punishable by a maximum fine of $20 000 or imprisonment for four years [Criminal Assets Confiscation Act 2005 (SA) s 33].
Prescribed drug offenders
The court has specific powers to seek forfeiture and restraining orders for all property of prescribed drug offenders, regardless of whether that property was acquired through the proceeds of an offence. A prescribed drug offender is a person who has been convicted of a serious drug offence (such as trafficking or manufacturing a commercial quantity of a controlled drug) where they have at least two other previous convictions for prescribed drug offences in the previous ten years [see Criminal Assets Confiscation Act 2005 (SA) s 6A].
Immediately on a person becoming a prescribed drug offender (i.e. upon conviction), a forfeiture order will be taken to have been made by the convicting court [see s 56A(1)]. This is referred to as a deemed forfeiture order. Upon conviction, all property owned by a prescribed drug offender will then be forfeited to the Crown, aside from protected or excluded property [see s 56A(2)]. This means that a prescribed drug offender's property does not have to be acquired through the proceeds of an offence to be forfeited or restrained [see definition of tainted property in section 3].
The court can order that certain property be excluded from a forfeiture order, in circumstances where, for example, the prescribed drug offender has cooperated with a law enforcement agency, or where it would be contrary to the financial interests of the Crown to have the property forfeited [see ss 59A and 59B].
Justice Rehabilitation Fund
The proceeds of any confiscated assets forfeited to the Crown upon the conviction of a prescribed drug offender will be paid into the Justice Rehabilitation Fund. This Fund sits separately from the Victims of Crime Fund and enables the Attorney-General to fund programs and facilities for the benefit of offenders, victims and other persons, that will further crime prevention and rehabilitation strategies [see s 209A(5)]. In addition to any proceeds garnished from prescribed drug offenders, Parliament or the Attorney-General can also allow for additional funds to be paid into the Justice Rehabilitation Fund [see s 209A(3)].
Obtaining drugs by deception
The Controlled Substances Act 1984 (SA) [Part 4] also creates a number of offences for obtaining drugs by deception from legitimate sources, such as doctors, dentists, or pharmacists. This includes the use and possession of forged prescriptions. Generally these offences duplicate existing offences, such as the forging and altering of documents and obtaining by false pretences.
Possession without authority of prescription drugs
Under the Controlled Substances Act 1984 (SA) s 18(3), it is an offence to possess without authority substances declared to be 'prescription drugs'. It is also an offence to manufacture, prescribe, supply or administer a prescription drug (not being a drug of dependence) without the proper authority [s 18].
Maximum penalty: $10 000 fine or imprisonment for 2 years.
The 'Standard for the Uniform Scheduling of Drugs and Poisons' published by the Australian Health Ministers Advisory Council and updated from time to time lists these substances.
There is also a restriction of prescription or supply of certain drugs of dependence in certain circumstances [s 18A].
Sale or supply of volatile solvents (including nitrous oxide)
Another provision covers the sale or supply of volatile solvents where the seller suspects the buyer is intending to inhale the solvent or supply it to another to inhale [s 19].
Maximum penalty: $10 000 fine or imprisonment for 2 years.
Nitrous oxide must not be sold or supplied to a person under 18 years, and volatile solvents that are petroleum products must not be sold or supplied to a person under 16 years [see s 19(3); regulation 23(1a) of the Controlled Substances (Poisons) Regulations 2011 (SA)].
Maximum penalty: $10 000 fine
Regulation 23A of the Controlled Substances (Poisons) Regulations 2011 (SA) further regulates the retail sale of nitrous oxide- including a prohibition against its sale between the hours of 10:00pm and 5:00am on any day.
Drug paraphernalia
Under s 9B Summary Offences Act 1953 (SA) it is an offence to sell or supply drug paraphernalia. Penalties apply to individuals and also to businesses and there are separate penalties where the sale or supply has been to a minor.
Maximum penalty for sale or supply of prohibited item:
for an individual - $10 000 or 2 years imprisonment
for a body corporate - $50 000
Maximum penalty for sale or supply of prohibited item to a minor:
for an individual - $20 000 or 2 years imprisonment
for a body corporate $100 000
The list of prohibited items includes the following:
A cocaine kit consists of 2 or more of the following items packaged as a unit apparently for the use of cocaine:
The law relating to the exportation or importation of illicit drugs (narcotic goods'or narcotic substances' into or out of Australia is contained in the Customs Act 1901 (Cth).
Elements of the offence
The offence of importing prohibited narcotics requires the prosecution to prove beyond reasonable doubt two things:
Proof of importation
Importation is proved by the passage of a bag through Customs into Australia after leaving an overseas aircraft or by proving the passage of a letter through the postal network into Australia from overseas.
Knowledge required
To prove that it is a crime it must be shown that the accused knew that it was there and what it was. In practice, this evidence is often obtained from the confessions of people arrested.
Territorial limits
The general principle is that only crimes committed within the territorial limits of Australia can be punished in Australian criminal courts. It is well established that goods are regarded as imported when the aircraft carrying them lands in Australia or when a ship has brought them within a port. Any person in possession of a prohibited import within Australia's territorial seas is also within the reach of the Customs Act 1901 (Cth).
In addition to those people directly involved with narcotics other people can also be charged in the following circumstances:
External body searches
Where there are reasonable grounds for suspecting that a person is carrying prohibited goods on their body, police and customs officers have powers to conduct external body searches [Customs Act 1901 (Cth) s 219Q]. Police and customs officers have the power to detain a person under these circumstances for the purpose of conducting such a search.
Internal searches
Where a person is suspected on reasonable grounds by a customs or police officer of internally concealing a suspicious substance they can detain the person for the purposes of conducting an internal search [Customs Act 1901 (Cth) s 219S]. An internal search must be authorised by a judge if the person has not consented [s 219V] and carried out by a medical practitioner [s 219Z].
An internal non-medical scan can be carried out if the person agrees [s 219SA].
Search must be made within 48 hours of order of detention
Where an application is made for detention for the purposes of conducting an internal search a judge or magistrate may order detention for a period of 48 hours from the time the detention began or the time the detention order was made [Customs Act 1901 (Cth) s 219T, Uniform Special Statutory Rules 2022 (SA) Chapter 5 Part 3]. Where the judge or magistrate does not make such an order the person being detained must be released immediately.
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