Anthony Liberatore v. Bill R. Story, WardenAnthony Liberatore v. Bill R. Story, Warden
Petitioner, Anthony Liberatore, appeals from the district court’s denial of his petition for a writ of habeas corpus. Petitioner is concurrently serving a five-year sentence for conspiracy,
We find that petitioner is not entitled to habeas relief under his first two theories. However, in light of newly discovered evidence which was not available to the district court, we find that the ease must be remanded to the district court for the limited purpose of deciding whether the Parole Commissioner erred by failing to apprise petitioner of the existence of several letters received by the Parole Commission and whether petitioner should have been afforded an opportunity to respond to those letters.
I.
The factual background of this case is set forth in detail in our previous opinion in
United States v. Licavoli,
The facts relating to the RICO charge are somewhat more complicated. In the spring of 1976, petitioner’s boss, James Li-cavoli, decided to eliminate a rival gang leader, Danny Greene. Licavoli and others in his organization contacted a professional assassin by the name of Raymond Ferritto. Ferritto subsequently testified that he met with several of Licavoli’s associates regarding the plan to kill Greene. However, Fer-ritto never met directly with petitioner. Ferritto and others stalked Greene for several months, but their plots were repeatedly thwarted. In the meantime, Liberatore contracted with two other assassins to kill Greene and other members of Greene’s organization. Finally, on October 6, 1977, an ambush was arranged to kill Greene during a visit to his dentist. According to the plan, the men hired by Liberatore would attempt to shoot Greene outside the dentist’s office. Ferritto assembled a bomb which would be used as a backup. Apparently, the gunmen were unable to get a clear shot at Greene as he emerged from the office, so Ferritto detonated the bomb which had been planted in the car parked adjacent to Greene’s automobile. Greene was killed instantly. Several persons, including petitioner, were ultimately prosecuted in connection with this murder.
Three members of Licavoli’s organization were convicted of murdering Greene. The state court jury found Liberatore not guilty on the charge of aggravated arson, but the jury was unable to reach a verdict on the murder charge against Liberatore. Following the declaration of a mistrial, Libera-tore’s attorney moved for dismissal of the murder charge on double jeopardy grounds. The motion was denied; however, the trial court was reversed on appeal. The state then appealed to the Ohio Supreme Court which, on March 9, 1983, ruled in favor of Liberatore and held that a retrial on the charge of murder was barred. The state’s petition for a writ of certiorari to the United States Supreme Court was denied on June 27, 1983.
(State v. Liberatore,
After the state appellate court had rendered its decision, but before the Ohio Supreme Court had ruled on Liberatore’s case, he was tried, convicted, and sentenced in federal court for conspiracy to violate RICO. As previously noted, petitioner’s RICO conviction necessitated a finding by the federal jury that petitioner had, in fact, committed the alleged predicate acts of either murder or conspiracy to commit murder, or both in addition to the bribery offense.
Petitioner Liberatore was given his initial parole hearing on June 2, 1983. At the hearing, Liberatore argued that the murder charge should not be considered in setting a parole date because he had been acquitted of that charge by a state jury. In response, the examiners noted that he had been acquitted as a result of a hung jury and that there had not been a finding of “not guilty.” The examiners gave Libera-tore an offense severity rating of Category Eight because his conviction “involved RICO with the underlying offense [of] murder and bribery of a public official.” Accordingly, the examiners recommended that Liberatore’s confinement be continued to the expiration of his sentence. Petitioner appealed this decision to the Regional Commissioner and then to the National Appeals Board of the Commission, but both appeals were rejected.
On January 9, 1984, we issued our opinion in
Licavoli
affirming the RICO convictions of petitioner and other members of the Licavoli organization. In upholding the convictions, we held that murder and conspiracy to commit murder were separate offenses under Ohio law and that both could be used as predicate offenses to establish a RICO violation.
On July 16, 1986, petitioner received a statutory interim parole hearing before the examiner’s panel. Petitioner’s attorney informed the panel of the decision of the United States Supreme Court to deny the state’s petition for certiorari in petitioner’s state criminal prosecution case. In light of the fact that petitioner could not be retried on the murder charges, petitioner’s attorney argued that the charges should not be considered in selecting the parole guidelines applicable to petitioner’s RICO sentence. In its written opinion, the panel stated:
In view of the information presented by subject’s attorney, it does appear to the panel that the Commission should not be holding subject responsible for murder and that would change his guideline range considerably. Therefore, we are rating the offense behavior as Category Five severity because it involved racketeer influenced and corrupt organizations, salient factor is 10, guidelines 24-36 months. Subject has been in custody approximately 54 months, well above the top of the guidelines.
The panel is recommending that subject be paroled in approximately 2lk months.
On August 4, 1986, the Commission’s regional office received a letter dated August 1, 1986, from Stephen H. Jigger, a Justice Department attorney in charge of the Cleveland Strike Force. In the letter, Jigger vigorously opposed the petitioner’s release and described petitioner’s role in the murder conspiracy.
In addition to the letter from Mr. Jigger, the Parole Commission apparently received several other letters from various law enforcement agents and federal prosecutors. During the pendency of this appeal, petitioner learned of the existence of these additional letters through a Freedom of Information Act request.
On August 12, 1986, Thomas Kowalski, the Regional Administrator for the Parole Commission, dictated a memorandum to the Liberatore file noting the receipt of the letter from Stephen Jigger. In the brief memorandum, Kowalski stated that Jigger’s letter did not provide any new or significant information and that there was no need to hold a hearing to disclose the letter to petitioner before the Commission rendered its final decision. Kowalski’s memorandum contained no reference to the letters sent by Agent Griffin and others.
2
In a separate memorandum also dated August 12, 1986, Kowalski recommended to Acting Regional Commissioner, Carol Pavi-lak Getty, that she modify the panel’s recommended decision pursuant to
Mr. Stover [an attorney with the Parole Commission] agrees with this according to our conversation of 8/12/86. I agree this is Category] 8 offense since Mr. Liberatore was convicted of conspiracy, racketeer influenced and corrupt organization act and bribery of a public official. Subject was convicted of being a member of a conspiracy which planned the murder of Daniel Green [sic].
I agree that new notice of action with modified reasons would clarify.
In a written notice to petitioner, the Commission informed him:
Your offense behavior has been rated as Category Eight severity because in fur *834 therance of your federal racketeering offense you conspired to murder Daniel Green [sic]. Your acquittal of the substantive charge of murder under Ohio law does not change the fact that your federal conviction establishes your guilt of the conspiracy offense.
Petitioner appealed the decision to the National Appeals Board of the U.S. Parole Commission, but the Appeals Board affirmed the ruling of the Regional Commissioner.
On February 26, 1987, Liberatore filed a petition for a writ of habeas corpus alleging, inter alia, that the Commission misapplied the parole guidelines and that the Regional Commissioner gave improper consideration to the “incorrect and inflammatory” letter from the Cleveland Strike Force attorney. The district court referred the case to a magistrate who issued a report and recommendation that the petition be denied.
On August 17, 1987, the district court issued a ten-page order adopting the magistrate’s report and recommendation and denying the petition. Petitioner filed a timely appeal.
II.
Petitioner raises three arguments on appeal. First, petitioner argues that the Commission should not have considered the predicate offenses of murder and conspiracy to commit murder in rating the severity of petitioner’s RICO offense. Second, the petitioner argues that the Regional Commissioner acted beyond the scope of her authority by unilaterally overruling the panel’s “findings of fact and conclusions of law” as they related to the severity rating of petitioner’s offense. Finally, petitioner contends that the Regional Commissioner improperly considered the allegedly misleading and inflammatory letters and that he should have been granted a hearing in order to respond to the letters. We address each of these issues seriatim.
A.
The United States Parole Commission Regulations,
Racketeer Influenced and Corrupt Organizations (re:18 U.S.C. § 1961-63 )
Grade according to the underlying offense attempted, but not less than Category Five.
The central dispute over the application of the guidelines focuses on the meaning of “underlying offense.” The government contends that the “underlying offense” involved in a RICO violation refers to the predicate acts which are used to establish a pattern of racketeering. In the instant case, Liberatore was convicted of violating
According to the last statement of reasons given by the Parole Commissioner, it is clear that the Commission considered the “underlying offense attempted” to be conspiracy to commit murder. (“Your offense behavior has been rated as Category Eight Severity because in furtherance of your
*835
racketeering offense you conspired to murder Daniel Green [sic]”). Under the guidelines, murder is rated as a Category Eight offense (
In contrast, petitioner argues that since he was convicted under
Petitioner does not cite any cases which support his interpretation of the parole guidelines. Instead, petitioner attempts to rely on our opinion in Licavoli wherein we held that petitioner and his codefendants could be convicted under RICO even though they had been acquitted in state court of committing some of the offenses which were used to establish a pattern of racketeering activity in their RICO prosecution. Petitioner argues that the thrust of our opinion in Licavoli was that operating a criminal enterprise in violation of RICO is a separate offense which should be considered independently from the predicate acts by means of which the enterprise conducts its activities. In his brief, petitioner quotes from a portion of the Licavo-li opinion in which this court stated:
[RICO] forbids “racketeering” not state offenses per se. The state offenses referred to in the federal act are definitional only; racketeering, the federal crime, is defined as a matter of legislative draftsmanship by a reference to state law crimes. This is not to say ... that the federal statute punishes the same conduct as that reached by state law. The gravamen ofsection 1962 is a violation of federal law and “reference to state law is necessary only to identify the type of unlawful activity in which the defendant intended to engage.” United States v. Cerone,452 F.2d 274 , 286 (7th Cir.1971). (Footnote omitted).
Although petitioner’s argument displays a considerable amount of ingenuity, we find that it must fail for several reasons. First, the Parole Commission’s interpretation of its own regulation should be accorded deference by a reviewing court unless it is clearly erroneous or inconsistent with the regulation.
Williams v. U.S. Parole Commission,
Under petitioner’s interpretation of the regulation, this flexibility would be eliminated. Instead, a person convicted of conspiracy to violate RICO under
Moreover, we do not find anything in our opinion in
Licavoli
which would preclude the Commission from interpreting the regulatory language “underlying offense attempted” to include the predicate acts which are contained in the definition of “racketeering activity” in
Petitioner also argues that the Parole Commission was precluded from considering the murder charges because petitioner was acquitted on those charges in state court and can no longer be retried for those crimes. In support of this contention, petitioner directs our attention to
However, the Commission shall not consider in any determination charges upon which a prisoner was found not guilty after trial unless;
(1) Reliable evidence is presented that was not introduced at trial (e.g., a subsequent admission or other clear indication of guilt) or;
(2) The prisoner was found not guilty by reason of his mental condition.
Again we find several flaws in petitioner’s argument. First, as previously noted, petitioner’s state court criminal prosecution did not result in a verdict of “not guilty”; rather, a mistrial was declared after the jury was unable to reach a decision. Thus, by its terms, the regulation quoted by petitioner does not apply to his situation. Second, the regulation contained in
[T]he Commission shall not consider in any determination charges upon which a prisoner was found not guilty after trial unless:
(3) the acquittal is contradicted by, or inconsistent with, a conviction by the same or another trial jury.
The amendment now makes clear the Commission’s original intent that a verdict of not guilty does not preclude consideration of a prisoner or parolees underlying criminal behavior, when the same evidence that resulted in the acquit *837 tal has also resulted in an inconsistent verdict of guilty.
52 Fed.Reg. 22777 (1987) (emphasis added).
In the instant case, the federal jury which found petitioner guilty of conspiring to violate RICO necessarily found that he also committed the alleged predicate acts of murder or conspiracy to commit murder. Thus, even though petitioner was not convicted of those crimes in state court, the Commission was still free to consider the charges because the state court acquittal was “contradicted by, or inconsistent with, a conviction” on the RICO charge by the federal jury.
Finally, any questions about the validity of the RICO conviction and the findings of the federal jury were resolved against the petitioner in United States v. Licavoli where this court upheld the RICO convictions of petitioner and his codefendants. Thus, our decision in Licavoli does more to undermine petitioner’s arguments than it does to support them.
Accordingly, since the Commission’s decision to classify petitioner’s offense severity rating at Category Eight is supported by a rational basis, we find the district court was correct in refusing to overturn the Commission’s decision.
B.
Petitioner’s second claim of error is based on a procedural argument in which he contends that the Regional Commissioner exceeded the scope of her authority by unilaterally reversing the decision of the parole panel. The Regional Commissioner acted pursuant to
[A] Regional Commissioner may:
(1) On his own motion, modify or reverse the recommendation of a hearing examiner panel that is outside the guidelines to bring the decision closer to (or to) the nearer limit of the appropriate guideline range....
Petitioner argues that the panel’s recommendation was not “outside the guidelines” since the panel concluded that a Category Five offense severity rating was appropriate and petitioner’s time served had already exceeded the upper limit for someone with a Category Five rating with a salient factor score of 10 (24-36 months). According to petitioner, since the release date set by the parole panel was not “outside the guidelines” for a Category Five offense, the review of the decision by the Regional Commissioner was governed by
We reject this argument for two reasons. First, according to the Commission’s Rules and Procedure Manual, the Regional Commissioner may use
In addition, assuming
arguendo
that the Regional Commissioner was incorrect in acting pursuant to
C.
We now consider petitioner’s third and final claim of error. In his brief on appeal, petitioner argued that the August 1, 1986, letter sent by the Justice Department Attorney, Stephen Jigger, to the Regional Parole Commissioner contained statements that were “patently false” and “inflammatory.” Petitioner maintains that he should have been afforded a hearing in order to respond to the letter before the Regional Commissioner made her decision. Petitioner argues that he was entitled to notice and a hearing under
The Commission may take into account any substantial information available to it in establishing the prisoner’s offense severity rating ... and any aggravating or mitigating circumstances, provided the prisoner is apprised of the information and afforded an opportunity to respond.
Having reviewed the letter, we agree with the Commission’s assessment that the letter did not contain any new and significant information since it merely reiterated that the RICO conviction was predicated on, inter alia, a conspiracy to murder offense and this information was already available to petitioner and the Commission.
Thus, if the letter sent by Mr. Jigger had been the sole source of extraneous information regarding the petitioner, we would have been inclined to affirm the district court’s ruling that petitioner was not entitled to a hearing before the Commission regarding the contents of the letter.
During the pendency of this appeal, however, petitioner has uncovered additional evidence which shows that the Commission was in receipt of several other letters sent by various federal agents and prosecutors. Presumably, these letters were intended to persuade the Commission not to grant the petitioner’s request for parole. Unlike Mr. Jigger’s letter, however, these additional letters were not before the district court.
Title
Late received documents. If a document containing new and significant adverse information is received after a parole hearing but before all review and appellate procedures have been concluded, the prisoner shall be given a rehearing on the next docket. A copy of the document shall be forwarded to the institution for inclusion in the prisoner’s institutional file. The Commission shall notify the prisoner of the new hearing and his right to request disclosure of the document pursuant to this section. If a later received document provides favorable information, merely restates already available information or provides insignificant information, the case will not be reopened for disclosure.
Since the district court did not have an opportunity to evaluate the significance of these additional letters, we find it appropriate to remand the case for the limited purpose of determining whether the Commission violated the regulatory requirement of
In remanding this case to the district court we refrain from expressing any opinion as to whether or not petitioner was entitled to a rehearing before the Commission under
*839 Accordingly, the judgment of the district court is AFFIRMED IN PART and the case is REMANDED for further proceedings not inconsistent with this opinion.
Notes
. Petitioner’s bribery and conspiracy convictions were affirmed by this court in
United States v. Land and Liberatore,
. Apparently, the district court was never apprised of the existence of these additional letters and they were not included in the joint appendix initially filed by the parties in this appeal. Shortly before oral argument in this case, we granted petitioner’s motion to supplement the record to include copies of some of the omitted documents under