Querubin v. CommonwealthQuerubin v. Commonwealth
- Reporters:
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- Before:
- Spina
In this case, we consider the conditions for holding a defendant, who poses a serious flight risk, without bail, prior to trial, pursuant to
1. Background. The facts, as set forth by the parties in a joint statement of facts, are as follows. On August 9, 2000, State Trooper Mark Matron and members of a joint task force went to an apartment in Revere to arrest the defendant and one Wilham Serna on default warrants. When Trooper Marrón knocked on the door to the apartment, he heard footsteps inside. Moments later, Detective Michael Cauley of the Massachusetts Bay Transportation Authority (MBTA) police, who was stationed at the back stairwell of the apartment complex, saw the defendant and Serna open the door. They paused in the entrance and then ran back into the apartment. The two men apparently jumped out a window, evading the police as Detective Cauley awaited backup before entering the apartment. Police officers saw Serna fleeing down the street and gave chase. Just before he was apprehended, Serna threw a foil ball over a fence near an MBTA station. The police recovered the package and found that it contained 27.37 grams of a powder that was sixty-four per cent cocaine. Serna was arrested. The defendant, however, escaped.
That evening, the police returned to the apartment from which the defendant had fled to execute a search warrant. They recovered approximately twenty-two kilograms of seventy-nine per cent pure cocaine. Trooper Marrón estimated that the cocaine had a street value of approximately $2.2 million. The police also recovered papers in the name of Teodoro Ospina, an alias known by the police to have been used by the defendant.
On August 28, 2000, a grand jury indicted the defendant on a charge’ of trafficking in cocaine in an amount exceeding 200 grams, in violation of
On June 18, 2002, the defendant was arraigned before a magistrate who referred the matter to a judge in the Superior Court. The Commonwealth, pursuant to
2. Discussion. The thrust of the defendant’s argument is that
“A justice of the supreme judicial or superior court . . . upon application of a prisoner or witness held under arrest or committed . . . may inquire into the case and admit such prisoner or witness to bail if he determines that such release will reasonably assure the appearance of the person before the court and will not endanger the safety of any other person or the community . . . .”
We have held that this statutory provision, rather than
(a) Substantive due process. “So-called ‘substantive due process’ prevents the government from engaging in conduct that ‘shocks the conscience,’ Rochin v. California, 342 U.S. 165, 172 (1952), or interferes with rights ‘implicit in the concept of ordered liberty,’ Palko v. Connecticut, 302 U.S. 319, 325-326 (1937).” United States v. Salerno, 481 U.S. 739, 746 (1987). “In substantive due process analysis, the nature of the individual interest at stake determines the standard of review that courts apply when deciding whether a challenged statute meets the requirements of the due process clause. Where a right deemed to be ‘fundamental’ is involved, courts ‘must examine carefully the importance of the governmental interests advanced and the extent to which they are served by the challenged regulation,’ Moore v. East Cleveland, 431 U.S. 494, 499 (1977), and typically will uphold only those statutes that are narrowly tailored to further a legitimate and compelling governmental interest.” Aime v. Commonwealth, supra at 673, citing United States v. Salerno, supra at 748-751.
Freedom from physical restraint is a fundamental right. See Commonwealth v. Bruno, 432 Mass. 489, 503 (2000). However, a defendant does not have a constitutional right to be released on bail prior to trial.4 See United States v. Salerno, supra at 748-751, 753-755 (no absolute right to bail); Mendonza v. Commonwealth, 423 Mass. 771, 782 n.4 (1996) (“there has never
The defendant argues that
“The right to be bailed in certain cases is as old as the law of England itself . . . .”1 Stephen, History of the Criminal Law of England 233 (1883). See Commonwealth v. Baker, 343 Mass. 162, 165-168 (1961) (discussion of history of bail). The essential purpose of bail is to secure the presence of a defendant at trial to ensure that, if the defendant is guilty, justice will be served. See Commonwealth v. Ray, 435 Mass. 249, 255 n.12 (2001), citing Commonwealth v. Stuyvesant Ins. Co., 366 Mass. 611, 614 (1975); 4 W. Blackstone, Commentaries *294-295. See also L.B. Orfield, Criminal Procedure from Arrest to Appeal 104, 108 (1947) (Massachusetts has adhered to common-
The ability to secure a defendant’s presence at trial is of fundamental importance to the basic functioning of the judiciary, without which justice cannot be properly administered. We reaffirm a principle that has long been a part of the common law of this Commonwealth. A judge in the Superior Court has the inherent authority to deny a defendant’s motion for admittance to bail where bail will not reasonably assure the defendant’s appearance before the court. See Commonwealth v. Wright, 11 Mass. App. Ct. 276, 282 (1981) (bail properly denied where defendant’s interstate “pimping operations” rendered him flight risk); People v. Bailey, 167 Ill. 2d 210, 239-240 (1995) (provision of code of criminal procedure merely codifies court’s inherent authority to deny bail in particular situation). See also State v. Marro, 68 Conn. App. 849, 859 (2002) (court has inherent power to admit to bail where “defendant is in its custody”); State v. Wadsworth, 139 Wash. 2d 724, 740-741 (2000) (court has inherent power to grant bail). The inherent powers of the judiciary are those “whose exercise is essential to the function of the judicial department, to the maintenance of its authority, or to its capacity to decide cases.” Gray v. Commissioner of Revenue, 422 Mass. 666, 672 (1996), quoting Brach v. Chief Justice of the Dist. Court Dep’t, 386 Mass. 528, 535 (1982). See Jake J. v. Commonwealth, 433 Mass. 70, 77 (2000) (court has inherent authority to exercise own legitimate powers). Inherent judicial authority is “not limited to adjudication, but includes certain ancillary functions, such as rule-making and judicial administration, which are essential if the courts are to carry out their constitutional mandate.” O’Coin’s, Inc. v. Treasurer of the County of Worcester, 362 Mass. 507, 510 (1972). “Although inherent powers may be recognized by statute, they exist independently, because they ‘directly affect[] the capacity of the judicial department to function’ and cannot be nullified by the Legislature without violating art. 30 [of the Massachusetts Declaration of Rights].” First Justice of the Bristol Div. of the Juvenile Court Dep’t v. Clerk-Magistrate of the Bristol Div. of the Juvenile Court Dep’t, 438 Mass. 387, 397 (2003), quoting Opinion of the Justices, 279 Mass. 607, 613 (1932). Because a
The well-defined framework for setting bail under the court’s inherent powers is reflected in § 57. A judge may admit a defendant to bail if the judge determines that the release of the defendant “will reasonably assure the appearance of the person before the court.”
(b) Procedural due process. “When government action depriving a person of Ufe, liberty, or property survives substantive due process scrutiny, it must still be implemented in a fair manner. Mathews v. Eldridge, 424 U.S. 319, 335 (1976). This requirement has traditionally been referred to as ‘procedural’ due process.” United States v. Salerno, 481 U.S. 739, 746 (1987). The defendant argues that § 57 fails to meet the requirements of procedural due process because (1) it does not afford defendants the right to an evidentiary hearing at which they may testify on their own behalf, present witnesses and evidence, and cross-examine witnesses; (2) it fails to require proof that the defendant is dangerous by clear and convincing evidence; and (3) it is void for vagueness.
In support of his argument, the defendant erroneously contends that this case is controlled by our decision in Aime v. Commonwealth, 414 Mass. 667 (1993). There, we held that challenged portions of the 1992 amendments to
A fundamental requisite of “procedural” due process is the opportunity to be heard “at a meaningful time and in a meaningful manner.” Armstrong v. Manzo, 380 U.S. 545, 552 (1965). The concept is flexible, see Roe v. Attorney Gen., 434 Mass. 418, 427 (2001), and the features of the required hearing will be determined by the “nature of the case.” Mullane v. Central Hanover Bank & Trust Co., 339 U.S. 306, 313 (1950).
The potential deprivation of liberty implicates the protections of procedural due process. See Commonwealth v. Travis, 372 Mass. 238, 250 (1977) (due process protections attach to proceedings for civil commitment of sexually dangerous persons because of potential for loss of liberty). “In determining what process is due . . . this court ‘must balance the interests of the individual affected, the risk of erroneous deprivation of those interests and the government’s interest in the efficient and economic administration of its affairs.’ ” Commonwealth v. Barboza, 387 Mass. 105, 112, cert. denied, 459 U.S. 1020 (1982), quoting Thompson v. Commonwealth, 386 Mass 811, 817 (1982). See Mathews v. Eldridge, supra at 334-335.
The conflict between the significant liberty interest of a defendant who is held while awaiting trial and the compelling interest of the State in securing a defendant’s appearance for that trial is indeed substantial. However, a defendant is entitled
The inquiry at a bail proceeding under § 57 where the only issue is the amount of bail that will reasonably assure the defendant’s presence at trial involves the presentation of evidence that, in the vast majority of cases, is undisputed, a matter of public record, or readily explained. It also involves the application of factors, previously noted, that are familiar, straightforward, and relatively simple. The necessary determination can be adequately presented and decided based on documents (e.g., police reports, witness statements, letters from employers and others, and probation records) and the representations of counsel. Cf. Snow v. Commonwealth, 404 Mass. 1007 (1989) (judge may rely on hearsay statements and representations of counsel). Of course, the evidence must be sufficiently reliable to avoid any significant risk of an erroneous deprivation of liberty. See Thompson v. Commonwealth, supra at 817. A bail proceeding under § 57 is not intended to be a mini-trial, and the rules of evidence do not apply. A full-blown evidentiary hearing that includes the right to present and cross-examine witnesses is not needed or required. However, such a hearing, or some variation, may be held in the discretion of the judge when the circumstances of a particular case warrant.
Here, the defendant was properly given a hearing prior to the judge ruling on his motion for admittance to bail, and he took advantage of the opportunity, attacking the strength of the Com
The defendant argues that § 57 is unconstitutional because it fails to articulate any standard of proof for determining whether a person presents a risk of flight and, if a person does present such a risk, that there is no amount of bail that will assure his presence as required. “The standard of proof is an element of the minimum procedural due process required in proceedings affecting protected ‘liberty’ or ‘property’ interests.” Spence v. Gormley, 387 Mass. 258, 274 (1982), citing Santosky v. Kramer, 455 U.S. 745, 755-756 (1982). “The standard serves to allocate the risk of error between the litigants and to indicate the relative importance attached to the ultimate decision.” Addington v. Texas, 441 U.S. 418, 423 (1979). Decisions under the Federal Bail Reform Act of 1984,
Finally, there is no merit to the defendant’s argument that the standard for admitting a person to bail under
3. Conclusion. The defendant has failed to show that his due process rights have been violated. The order of the Superior Court judge denying the defendant’s motion to be admitted to bail pursuant to
So ordered.
Notes
The defendant’s brother had been granted political asylum in the United States because of a potential danger to his life and to the lives of his family members in Colombia, South America. The defendant asserted that he would be entitled to political asylum for the same reason.
On November 19, 2002, the judge allowed the defendant’s suppression motion, concluding that the affidavit in support of the search warrant failed to establish probable cause to believe that drugs were being sold or stored in the apartment. The record indicates that on November 27, 2002, the defendant orally requested reconsideration of the June 19, 2002, order based on this development, and that his request was denied.
rhe Eighth Amendment to the United States Constitution and art. 26 of the Massachusetts Declaration of Rights do provide that a defendant has a
The language in
The Reporters’ Notes to
“The purpose of setting terms for any pretrial release is to assure the presence at court of the person released. Any person charged with an offense, other than an offense punishable by death [sic], is required by law to be released on his personal recognizance pending trial unless the person setting the terms of release determines, in the exercise of his discretion, that such a release will not reasonably assure the appearance of the person as required. In making a determination as to what form of release to set, the following factors shall be considered: (1) the nature and circumstances of the offense charged, (2) the accused’s family ties, (3) his financial resources, (4) his length of residence in the community, (5) his character and mental condition, (6) his record of convictions and appearances at court proceedings or of any previous flight to avoid prosecution or (7) any failure to appear at any court proceedings.”
Reporters’ Notes to
A defendant’s presence may be waived or excused in certain circumstances recognized under
The amount of cocaine at issue, twenty-two kilograms valued at approximately $2.2 million, reasonably suggested that the defendant, or persons with whom he engaged in trafficking, had both the ability to post and the willingness to forfeit enormous sums of money in order to keep the defendant out of the hands of law enforcement officials.
We note that the civil confinement of a mentally ill person requires the Commonwealth to prove, beyond a reasonable doubt, that such person poses a substantial risk of physical harm to others. See Commonwealth v. Nassar, 380 Mass. 908, 916 (1980). Similarly, proof beyond a reasonable doubt of dangerousness is required to commit a sexually dangerous person. See Mendonza v. Commonwealth, 423 Mass. 771, 782-783 (1996). This high standard of proof is necessary because the Commonwealth is seeking to confine the individual for a period of time that is potentially indefinite, perhaps even lifelong. Id. at 783. In contrast, pretrial detention to secure a defendant’s presence before the court is limited and temporary; the “main event” is the trial at which the defendant’s liberty will be definitively adjudicated. Id.
Once a decision to admit a defendant to bail has been reached, the amount of bail imposed is a matter of discretion, see Matter of Troy, 364 Mass. 15, 39 (1973), subject to the constitutional prohibitions against excessive bail.