Reino v. StateReino v. State
By indictment filed August 5, 1976, petitioners were charged with murder in the first degree. Specifically, the indictment charged that the petitioners shot a man to death on September 7, 1972. Both father and son are charged with the same crime and both have filed a suggestion for writ of prohibition contending that prosecution is barred by the statute of limitations in effect on the date of the alleged offense.1 We have issued a rule nisi in prohibition as to each petition. The causes have been consolidated for briefing, oral argument, and final disposition.
On November 17, 1976, a lengthy hearing was conducted on the petitioners’ motions to dismiss. The petitioners argued that they should be released on the grounds that the statute of limitations had run prior to the filing of the indictment. It was their assertion that the crime was subject to a two-year period of limitations because the murder followed the decision of the United States Supreme Court in Furman v. Georgia, 408 U.S. 238, 92 S.Ct. 2726, 33 L.Ed.2d 346 (1972), and preceded the adoption of a new death penalty statute on October 1, 1972. Predicated on his discernment of legislative intent, the trial judge rejected this contention and denied the motions to dismiss. The instant petitions seeking the issuance of writs of prohibition followed.
Jurisdiction in this Court is predicated on
Although the jurisdictional point is novel and not without doubt, since the trial court has concluded that the State is not time-barred from prosecuting petitioners under a statute of limitations providing for prosecution at any time for an “offense punishable by death,” we conclude jurisdiction lies in this Court pursuant to
The determinative question before this Court is whether “capital” crimes committed between July 24, 1972, the effective date of the decision of the United States Supreme Court in Furman v. Georgia, supra, and October 1, 1972, the period when capital crimes did not exist in the State of Florida, are subject to the two-year statute of limitations codified in
At the hearing on the motions to dismiss the indictments, petitioners relied heavily on this Court‘s decision in State ex rel. Manucy v. Wadsworth, 293 So.2d 345 (Fla. 1974). The Manucy opinion was rendered
The Court recited that the common question involved in the consolidated cases arose as an incidental consequence of the Furman decision. In analyzing the Manucy case, the Court pointed out that the death penalty was abrogated in Florida for the period from July 24, 1972, to October 1, 1972 (the hiatus period) as a result of Furman and the legislature‘s subsequent enactment of
The State urges, and the trial court concluded, that the statement in the Manucy opinion “subjecting all former capital crimes to prosecution within a two year period” [293 So.2d 345, 346] is mere dictum. The prosecution maintains that the only holding of the decision is that statutes of limitation are substantive rather than procedural. Lane v. State, 337 So.2d 976 (Fla. 1976), is cited by the State as supportive of this position. The question in Lane was whether the application of a statute of limitations is a quasi-procedural matter so as to fall within subsection (3) of
As pointed out by petitioners, Manucy stands for two interrelated propositions of law; (i) the two-year statute of limitations was in effect for crimes previously denominated capital during the hiatus period; and (ii) the statute of limitations in effect at the time of the commission of the crime controls. Brief of Renaldo Reino, Jr., p. 17. Had the Court not first concluded that the two-year statute of limitations would apply during the hiatus period, it would not have been necessary to distinguish between the date of the alleged crime and the date of arrest, for Manucy‘s contention would have been irrelevant. In essence, the question of whether the statute of limitations is substantive or procedural is relevant only if it is necessary to determine the time at which the statute is to be applied. If there were no distinction between pre-Furman and the hiatus period insofar as the period of limitations is concerned, then it would not have been necessary to ascertain the date for application of the statute. Accordingly, we reject the notion that the first proposition of law from Manucy enunciated above is dictum.
Accepting that one of the holdings of Manucy was that the two-year statute of limitations was in effect during the hiatus period, we are confronted with the assertion by the trial judge that this Court‘s decision “represents a simplistic and mechanistic dictum on the subject.” With all due respect to the learned trial judge, his conclusion fails to consider Manucy in light of Donaldson v. Sack, 265 So.2d 499 (Fla. 1972), decided on July 17, 1972 (prior to denial of rehearing in Furman). In anticipation that
... [W]e must refer to the penalty section, § 775.082(1) in this consideration, and this leads us right back to the old language of “punishable by death“. 265 So.2d 499, 502.
Thus, it is apparent that this Court rejected the classification rationale here asserted by the State in favor of the penalty rationale in determining the question of subject matter jurisdiction. Accordingly, if jurisdiction of the subject matter of the offense depends upon the permissible penalty, it would seem to follow that the question of whether prosecution is barred by the statute of limitations in force during the “hiatus period” should be measured by the same criteria when it categorizes by reference to offenses punishable by death.
Furthermore, Donaldson is important because it considered some of the procedural ramifications flowing from an elimination of capital offenses. It was determined that in the absence of capital crimes (i) initiation of all criminal proceedings could be by information or indictment and not solely by indictment; and (ii) trials for all criminal offenses would be held before a six rather than twelve-man jury. It was noted that the limitation upon the right to bail for offenses formerly “capital” was not affected because
The compelling tenor of Donaldson is to the effect that all attributes of capital crimes, procedural or substantive, fall when and so long as the death penalty is abolished. The State maintains that although procedural changes such as those discussed in Donaldson follow from abolition of the death penalty, substantive matters such as the statute of limitations were not so affected. This assertion, however, is refuted by cases from jurisdictions which have considered the effect of abolition of the death penalty on the substantive question of entitlement to bail. This Court was not presented with that issue in Donaldson because, as noted, the applicable constitutional and statutory provisions limited the right to bail for offenses punishable by life imprisonment as well as those punishable by death. In other jurisdictions, however, where limitation upon the right to bail is reserved for capital offenses where the guilt is evident or the presumption is great, a preponderance of the courts have concluded
In support of the trial judge‘s ruling, the State declares the need to construe what appears to be the plain and unambiguous terms appearing in
... but if reference in the adopting statute is to the general law regulating the subject, the incorporation is of that general law as it exists from time to time or at the time the exigency arises to which the law is to be applied. ... (Emphasis supplied)
The annotator concluded that the Florida cases on the subject of reference to general law, taken in the aggregate, did not seem to be in harmony with the general rule stated. But, closer scrutiny of the Florida cases leads us to believe the annotator to be in error and that in the circumstances of these proceedings, the general rule should apply if we are to indulge in the art of devining
Disharmony occurred when the Court in Bushnell v. Dennison, 13 Fla. 77 (1870), conceded the correctness of Jones with respect to the proposition that the “law regulating descent” mentioned in the act for distribution was to be the law in force at the time the contingency occurred, but nonetheless overruled Jones as to the applicability of several provisos subsequently added to the adopted law by amendment. At best, Bushnell v. Dennison, supra, is equivocal. Apart from VanPelt v. Hilliard, supra, which dealt with incorporation of a specifically described statutory section, the only remaining cases on the subject in Florida dealt with in the annotation are Williams v. State, 100 Fla. 1570, 131 So. 864 (1930), its companion case, Kennedy v. Watson, 100 Fla. 1576, 131 So. 866 (1930), and State v. Harllee, 100 Fla. 1562, 131 So. 866 (1930). In the companion cases, the Court held that a statutory provision allowing constables fees “allowed sheriffs for like services” limited the constable to fees allowed sheriffs by the same general enactment (Rev.Gen.St. 1920, §§ 2891, 2899) even though by later amendment fees for sheriffs were increased. The Harllee case presented the same question with respect to fees of justices of the peace in connection with fees allowed to clerks of the circuit court for similar services. In that the adopting and adopted provisions were sections of the same general enactment (Rev.Gen.St. 1920, §§ 3084, 3384), a majority of the Court reached the same result as in the constable cases. In Harllee, the rule was articulated:
When one provision of a statute by general words of reference adopts provisions that appear only in another section of the same statute, future amendments of the adopted provisions are not to be regarded as included in the adoption unless an intent to include such future amendments in the adopting provision clearly appears. (Emphasis supplied) 131 So. 866, 868.
It appears, then, that the Court engrafted a variation on the general rule where the adopted provision was enacted at the same time as and as another section of the same statute in which the adopting provision appears. Consistent with Jones v. Dexter, supra, and the great weight of authority, it is apparent that the general rule applies in the instant proceedings because the provisions asserted to be incorporated by reference in
But when the adopting statute makes no reference to any particular statute or part of statute by its title or otherwise, but refers to the law generally which governs a particular subject, the reference in such a case includes not only the law in force at the date of the adopting act, but also all subsequent laws on the particular subject referred to, so far at least as they are consistent with the purpose of the adopting act. 151 So. 333.
State v. Smith, supra, involved the question of whether a city may adopt by reference in
Respondents submit that the trial judge was in error by concluding that the provisions of
Furthermore, if interpretation of legislative intent beyond the clear language of the statute were deemed necessary, two basic rules of construction were ignored by the trial court. First, criminal statutes are to be construed strictly in favor of the person against whom a penalty is to be imposed. State v. Llopis, 257 So.2d 17 (Fla. 1971); Allure Shoe Corporation v. Lymberis, 173 So.2d 702 (Fla. 1965); Norris v. State, 249 So.2d 746 (Fla.4th DCA 1971); Dotty v. State, 197 So.2d 315 (Fla.4th DCA 1967). Contrary to this well established rule for construing criminal statutes, the trial judge construed the statute in question strictly against the petitioners. Second, statutes of limitation in criminal cases are to be construed liberally in favor of the accused. Bridges v. United States, 346 U.S. 209, 73 S.Ct. 1055, 97 L.Ed. 1557 (1953); Mead v. State, 101 So.2d 373 (Fla. 1958); Mitchell v. State, 157 Fla. 121, 25 So.2d 73 (1946). The reason for such rule is aptly stated in Toussie v. United States, 397 U.S. 112, 114-15, 90 S.Ct. 858, 860, 25 L.Ed.2d 156 (1970):
The purpose of a statute of limitations is to limit exposure to criminal prosecution to a certain fixed period of time following the occurrence of those acts the legislature has decided to punish by criminal sanctions. Such a limitation is designed to protect individuals from having to defend themselves against charges when the basic facts may have become obscured by the passage of time and to minimize the danger of official punishment because of acts in the far-distant past. Such a time limit may also have the salutary effect of encouraging law enforcement officials promptly to investigate suspected criminal activity. For these reasons and others, we have stated before “the principle that criminal limitations statutes are `to be liberally interpreted in favor of repose.‘” (Citations omitted)
Were the foregoing not persuasive to sustain the petitioners’ position on the proper construction of the statute, the very actions of the legislature subsequent to Furman, Donaldson, and Manucy unequivocally expressed the intention of that body. As early as March, 1972, the legislature was cognizant of the possibility of the decision reached in Furman. Not only did the legislature revise the death penalty statute to be effective October 1, 1972 (Ch. 72-72, Laws of Florida), it enacted Ch. 72-118, Laws of Florida, filed in the office of the Secretary of State March 30, 1972, which amended
In the event the death penalty in a capital felony is held to be unconstitutional by the Florida Supreme Court or the United States Supreme Court, a person who has been convicted of a capital
felony shall be punished by life imprisonment.
However, it did not undertake to alter the statute of limitations applicable to capital crimes. Furthermore, notwithstanding the rendition of Donaldson on July 17, 1972, the legislature took no action to amend
It was not until 1976 through the enactment of Ch. 76-275, Laws of Florida, that the legislature provided for no limitation of time in prosecuting a life felony. No attempt was made to apply such provision retrospectively. However, for the first time the legislature spoke to the Furman-type repeal of the death penalty in a statute of limitations by providing:
... In the event the death penalty is held to be unconstitutional by the Florida Supreme Court or the United States Supreme Court, all crimes designated capital felonies shall be considered life felonies for the purposes of this section and prosecution for such crimes may be commenced at any time. Ch. 76-275, Section 1, Laws of Florida.
The core of respondent‘s argument is that the legislature intended, prior to the enactment of Ch. 76-275, that all crimes “punishable by death” pre-Furman would remain subject to prosecution “at any time” during the “hiatus period.” Were that the intention of the legislature, Ch. 76-275 would be a nullity. However, the rule of law is that “when a statute is amended, it is presumed that the legislature intended it to have a meaning different from that accorded to it before the amendment.” Arnold v. Shumpert, 217 So.2d 116, 119 (Fla. 1968).
It is inescapable from the holdings in Donaldson and Manucy, from a plain reading of
There are those advocates of “law and order” among us who will view this decision as another example of courts being “soft on criminals.” We would respond by reminding these persons that the petitioners could have been prosecuted had their alleged crimes been detected, and had proceedings been commenced at any time within two years of the homicide. See Toussie v. United States, supra. More significantly, it must be remembered that without law there can be no order. The law must be applied evenhandedly to all lest we run the risk of selective prosecutions. Our government would then become one of men rather than laws. All subscribe to the notion that the law should be enforced. By our decision today, we enforce the law as was enunciated in
The rules nisi in prohibition heretofore issued in these consolidated cases are made absolute.
OVERTON, C.J., and BOYD and HATCHETT, JJ., concur.
ADKINS, J., concurs in result only.
ENGLAND, J., concurs with an opinion.
KARL, J., dissents.
It is often said that hard cases make bad law. This case would appear to fall into that category, if viewed in the way it is characterized by the state:
“The effect of the petitioners’ interpretation of the limitations statute is clear — all murderers who by chance committed their crimes between the effective date of Furman v. Georgia, supra, and October 1, 1972, the date of the adoption of a new death penalty statute, will be free from prosecution two years after their victims expire.”1
But there is another (and, I believe, more accurate) way to characterize this case which suggests that it is neither hard to decide nor productive of “bad” law.
Despite the fact that the United States Supreme Court eliminated the possibility of state executions in July of 1972, the various crimes for which the death penalty previously could be imposed, such as murder, kidnapping and rape, still remained the most serious criminal acts recognized by our law. Nothing in the penalty change altered the responsibility of law enforcement officials to detect, apprehend, and obtain indictments against the perpetrators of these crimes as promptly as possible.
What we see here, then, is simply an inability of law enforcement officials, for whatever causes, to find and prosecute expeditiously the perpetrators of this 1972 murder. Statutes of limitations have always barred stale prosecution attempts, even though the product of villainy is the loss of a human life.2 This case reflects no more than a faithful application of the well-established legal principle that courts are bound to follow explicit legislative guidelines.
Notes
In 1972, § 932.465, Fla. Stat., read, in pertinent part, as follows:
“(1) A prosecution for an offense punishable by death may be commenced at any time.
“(2) Prosecution for offenses not punishable by death must be commenced within two years after commission... .”
Respondent‘s brief at p. 7.