Specially Assigned.
On March 20, 2009, the Circuit Court for Baltimore City denied Appellant Robert B.’s
For the reasons that follow, we hold that the circuit court committed legal error and we will reverse and remand the matter to the circuit court for further proceedings.
FACTS AND PROCEEDINGS
Appellant was charged with possession with intent to distribute and simple possession of a controlled dangerous substance in the District Court of Maryland for Baltimore City on June 7, 2008. On August 7, 2008, the State entered a nolle prosequi on the possession with intent to distribute charge, leaving only the simple possession count for trial. On September 9, 2008, the case was transferred to the Circuit Court for Baltimore City after appellant requested a jury trial. A nolle prosequi was entered on the remaining possession charge on October 6, 2008.
Appellant filed a petition for expungement of both charges in accordance with CP § 10-105(a) on February 6, 2009. The petition was accompanied by a general waiver of any liability claim against the Baltimore City Police Department. At the time he filed the petition, appellant was on probation for a prior armed robbery conviction that resulted from a guilty plea on July 25, 2007, in the Circuit Court for Howard County. Due to appellant’s probationary status, the State objected to the petition for expungement, contending that appellant “has been charged with a crime.”
The circuit court denied the petition for expungement, concluding that appellant was “a defendant in a pending criminal proceeding” because of his probationary status, and that he was therefore ineligible to obtain an expungement under CP § 10 — 105(e) (4) (ii) (2). Appellant subsequently noted this appeal.
DISCUSSION
Subtitle 1 of Criminal Procedure Article Title 10 deals with expungements in Maryland. First enacted in 1975, this subtitle sets forth the petition process and eligibility requirements to obtain an expungement. A criminal charge concluded by the entry of a nolle prosequi is generally subject to expungement under the statute:
§ 10-105. Expungement of record after charge is filed
(a) A person who has been charged with the commission of a crime[] may file a petition listing relevant facts for expungement of a police record, courtrecord, or other record maintained by the State or a political subdivision of the State if:
(4) a nolle prosequi or nolle prosequi with the requirement of drug or alcohol treatment is entered[.]
However, that section limits the right to expungement as follows:
(e)(4) The person is not entitled to expungement if:
(i) the petition is based on the entry of probation before judgment, a nolle prosequi, a stet, including a nolle prosequi with the requirement of drug or alcohol abuse treatment, a conviction for a crime specified in subsection (a)(9) of this section, or the grant of a pardon by the Governor; and
(ii) the person:
1. since the full and unconditional pardon, entry, or conviction has been convicted of a crime other than a minor traffic violation; or
2. is a defendant in a pending criminal proceeding.
(Emphasis added).
Thus, the statute precludes expungement under two circumstances. First, a person is ineligible under subsection (e)(4)(ii)(l) if he “has been convicted of a crime other than a minor traffic violation” since the entry of a nolle prosequi.
The issue before this Court is whether the fact that appellant was on probation makes him “a defendant in a pending criminal proceeding” as contemplated by CP § 10-105(e) (4)(ii)(2).
The issue presented is purely a question of law. Therefore, this Court must determine whether the result reached by the trial court was legally correct without giving deference to the legal conclusion of the trial court. White, et al. v. The Pines Community Improvement Assoc., Inc., et al.,
A. Principles of Statutory Interpretation
“ ‘The cardinal rule of statutory construction is to ascertain and effectuate the intent of the legislature.’ ” Stoddard v. State,
“If the language of the statute is ambiguous, however, then ‘courts consider not only the literal or usual meaning of the words, but their meaning and effect in light of the setting, the objectives and purpose of [the] enactment [under consideration].’” Stoddard,
In construing a statute, “[w]e avoid a construction of the statute that is unreasonable, illogical, or inconsistent with common sense.” Blake v. State,
B. Probation is not a “pending ” criminal proceeding
The expungement provisions of Subtitle 1 of Title 10 of the Criminal Procedure Article do not define the term “pending” as it is used in § 10-105(e)(4)(ii)(2). Nevertheless, there is no reason to think, nor do the parties suggest, that the term “pending” is ambiguous on its face. When interpreting an unambiguous statutory term, that term is defined by its common understanding. Chow,
A criminal case begins upon a “formal charge, preliminary hearing, indictment, information, or arraignment.” Webster v. State,
A criminal proceeding is completed when a “sentence is imposed on a verdict of guilty. That is when judgment is entered.” Chmurny v. State,
Giving the expression its “natural and ordinary meaning,” we conclude that a criminal proceeding is “pending” for purposes of CP § 10 — 105(e)(4)(ii)(2) beginning with the formal charges, and ending upon entry of a judgment in the form of a sentence.
1. Case Law
In Blythe v. State,
If the County were correct that the mere possibility that a post-conviction petition might be filed compelled the conclusion that the criminal case was still pending, no criminal case would ever be final and the reasoning of the Faulk opinions would have been pointless. As long as a convicted defendant is still serving a sentence or is on parole or probation, the possibility of filing a post-conviction petition or a writ of federal habeas corpus or a writ of coram nobis is always present. Faulk’s language about there being no harm in temporarily deferring the disclosure “until the termination of a criminal proceeding” would be meaningless. The deferral would be a permanent denial.
Id. at 561,
In Whack v. State,
Since a criminal judgment is conclusive despite the possibility of being set aside on appeal, it stands to reason that Appellant’s conviction is conclusive even though his probation may later be revoked. An appeal from a criminal conviction addresses the merits of the underlying judgment and can result in the judgment being overturned. By contrast, a violation of probation arises independently from the underlying case. It does not alter the original judgment, even though the court can order execution of a previously suspended jail term.
One cannot reconcile a statutory interpretation that a criminal proceeding remains “pending” during probation, but that it is not “pending” during appeal. We may not interpret a statute in a manner that would be “illogical” and “inconsistent with common sense,” a construction of the statute we must avoid. Blake,
2. Statutory Context and Interpretation
A reading of the expungement statute as a whole supports the conclusion
CP § 10-105(c) describes the time requirements for filing a petition for expungement.
Subsection (c)(2)(i) states that a petition for expungement based on a probation before judgment may not be filed before “the date the petitioner was discharged from probation.” If the legislature had intended for subsection (e)(4)(ii)(2) to preclude an expungement while a defendant was on probation, there would be no need for that language in (c)(2)(i). We must presume that the legislature did not intend for these two sections to be redundant.
By contrast, subsection (c)(1), which provides for expungement based on an acquittal, nolle prosequi, or dismissal, begins the time line from “the disposition.” The only time constraints for expungements under these circumstances are the expiration of the tort limitations period or the filing of a written general release of tort claims by the petitioner.
C. Probation is not a “criminal proceeding ”
It is well established in Maryland that a revocation of probation hearing is a civil proceeding. Chase v. State,
Many of the constitutional rights inherent in criminal proceedings are not available in revocation of probation proceedings. For instance, a defendant is not entitled to a trial by jury at a probation hearing. Chase,
Since a violation of probation hearing is considered a civil matter, it would make little sense to view the probationary period that precedes it as a pending criminal proceeding.
The State points out that the statute frequently uses the expression “criminal charge” rather than “criminal proceeding”.
If the language of a statute is unambiguous and expresses a plain meaning, we will give effect to the statute as written. Stoddard, 395 Md. at 661,
D. Purpose of the Expungement Statute
The general purpose of the Criminal Record Ex-pungement Statute, CP § 10-101 et seq., is to “provid[e'j for the
CP § 10-109 contains the enforcement provisions of the expungement statute and establishes criminal sanctions for its violation.
The State argues that the General Assembly did not intend a defendant to be eligible to obtain an expungement for a nol prossed charge “if the person is engaged in criminal wrongdoing after the entry of the nolle prosequi”
CONCLUSION
We hold that appellant’s prior criminal proceeding was concluded when he was sentenced on July 25, 2007, to a suspended prison term and probation. That event constituted the final judgment in the case, despite the possibility that appellant’s probation might subsequently be revoked upon a violation. Therefore, there was no criminal proceeding pending as contemplated by CP § 10 — 105(e) (4) (ii) (2) at the time the petition for expungement was filed. Appellant was otherwise eligible to obtain an expungement of the subsequent charges. Accordingly, the trial court committed error by denying the petition for expungement. We shall reverse the order of the trial court and remand this matter for further proceedings not inconsistent with our opinion.
JUDGMENT OF THE CIRCUIT COURT FOR BALTIMORE CITY REVERSED.
CASE REMANDED FOR FURTHER PROCEEDINGS NOT INCONSISTENT WITH THIS OPINION.
COSTS TO BE PAID BY MAYOR AND CITY COUNCIL OF BALTIMORE.
Notes
. Pursuant to an Order of this Court entered on May 29, 2009, the case caption, all appellate briefs, and this Court’s written opinion will not mention appellant’s last name. Consistent with that Order, appellant will be referred to as "Robert B.”
. There is no contention that appellant would not qualify for expungement because of this provision.
. Blythe’s initial request to inspect investigatory records related to his prosecution was denied pursuant to Md.Code (1984, 2009 Repl.Vol.) § 10 — 618(f)(2) of the State Government Article (“SG”), which states that "[a] custodian may deny inspection by a person in interest only to the extent that the inspection would (i) interfere with a valid and proper law enforcement proceeding!].] ”
. In the Blythe case, this Court distinguished our decision in Faulk v. State’s Attorney for Harford County,
The Faulk cases dealt solely with an MPIA request of a defendant in a pending criminal proceeding. Those cases established that the MPIA did not require the State’s Attorney to make a specific showing that production of the requested materials would interfere with a pending criminal proceeding. If the proceeding was "pending,” then only a general denial of the request was needed under the MPIA.
In light of the historical development of [SG § 10 — 618(f) ] we are persuaded that the purpose of the amendment was to make clear that [SG § 10-618(f)] did not protect material simply because it was characterized as an investigatory record of a statutorily enumerated agency and did not sanction nondisclosure of investigatory records, either when there was no initial reason for confidentiality because no enforcement proceeding was contemplated or pending, or after any reason for confidentiality had ceased to exist because an enforcement proceeding had been concluded. Indeed, the purpose of [SG § 10-618(f)] was to permit nondisclosure of investigatory records compiled for law-enforcement purposes only when there was a need for confidentiality because of a contemplated or pending law-enforcement proceeding.
Faulk,
. In pertinent part, Article 27, Section 286(c)(1) reads:
A person who is convicted under subsection (b)(1) or subsection (b)(2) of this section, or of conspiracy to violate subsection (b)(1) or (b)(2) of this section shall be sentenced to imprisonment for not less than 10 years if the person previously has been convicted:
(i) Under subsection (b)(1) or subsection (b)(2) of this section;
(ii) Of conspiracy to violate subsection (b)(1) or subsection (b)(2)
Article 27 Section 286(b)(1) provides, inter alia, that any person distributing a Schedule I or II narcotic drug is guilty of a felony and subject to imprisonment of not more than 20 years and/or a fine of not more than $25,000. Section 286(b)(2) provides, inter alia, that a person convicted of distributing certain non-narcotic Schedule I or II drugs is subject to imprisonment for not more than 20 years and/or a fine of not more than $20,000.
Whack,
. The second appearance pf "convicted” — if the person has previously been convicted — is the operative term for subsequent offender treatment. This word may be interpreted in one of three ways: in its general and popular sense, to mean establishment of guilt pursuant to a verdict or plea of guilty; in its legal and technical sense, to mean following judgment or sentence; or in its "final” sense, to mean establishment of guilt, judgment, or sentence, and absence or resolution of any appeal.
Whack,
. Whack relied on a series of federal cases to support the proposition that the repeat offender statute required a "final judgment,” which meant complete exhaustion of appellate review. The Court rejected that argument, and found that while the current version of the federal statute had been interpreted to require a "final judgment,” the corresponding Maryland statute contained no such requirement.
[T]he [federal] statute has been construed to mean that, for purposes of imposing an enhanced penalty under [the federal statute], a prior conviction is not final if it is subject to or pending on direct appellate review.
The Maryland statutes are clearly different from the federal statute relied upon by Whack. Neither [of the applicable Maryland statutes] contains the qualification that convictions must be final.
Whack,
. If [] the defendant fails to perform the conditions of probation he may forfeit the benefits of probation. In such a case, when the original sentence or some portion of it is re-imposed, the "original sentence is the only true punishment; the probation revocation is merely the withdrawal of favorable treatment previously afforded the defendant.” In other words, when a probationer violates a condition of his probation, he is not subject to an additional punishment for that violation; but rather to the forfeiture of his conditional exemption from punishment for the original crime.
Williams v. State,
. (c) Time of filing.
(1) Except as provided in paragraph (2) of this subsection, a petition for expungement based on an acquittal, a nolle prosequi, or a dismissal may not be filed within 3 years after the disposition, unless the petitioner files with the petition a written general waiver and release of all the petitioner's tort claims arising from the charge.
(2) A petition for expungement based on a probation before judgment or a stet with the requirement of drug or alcohol abuse treatment may not be filed earlier than the later of:
(i) the date the petitioner was discharged from probation or the requirements of obtaining drug or alcohol abuse treatment were completed; or
(ii) 3 years after the probation was granted or stet with the requirement of drug or alcohol abuse treatment was entered on the docket.
(6) A petition for expungement based on the conviction of a crime under subsection (a)(9) of this section may not be filed within 3 years after the conviction or satisfactory completion of the sentence, including probation, that was imposed for the conviction, whichever is later.
. Crim. Proc. § 10-105(a)(9) provides that a person may be eligible for an expungement of records for convictions of State or local laws that prohibit certain public nuisance crimes such as public urination, drinking, vagrancy and the like.
. The term “criminal charge” appears multiple times throughout the expungement statute but is not specifically defined. For example, the term is used in CP § 10-105(a) to describe the proceedings in which a petitioner may be eligible for expungement. In § 10-105(a)(2), a person may receive an expungement if "the charge is otherwise dismissed!.]” Subsection (a)(5) permits expungement if “the court indefinitely postpones trial of a criminal charge by marking the criminal charge ‘stet’ or stet with the requirement of drug or alcohol abuse treatment on the docket!.]” Subsection (a)(7) permits expungement if "the charge was transferred to the juvenile court under § 4-202 of this article!.]” The term "charge” is also used in subsection (e)(2), which states that if a person is entitled to expungement, "the court shall order the expungement of all police records and court records about the charge.”
. We cannot determine whether this was Appellant’s primary motivation for seeking expungement, but the legislative intent remains the same.
. Crim. Proc. § 10-109. Prohibited Acts
(a) (1) Disclosure of expunged information about criminal charges in an application, interview, or other means may not be required:
(i) by an employer or educational institution of a person who applies for employment or admission; or
(ii) by a unit, official, or employee of the State or a political subdivision of the State of a person who applies for a license, permit, registration, or governmental service.
(2) A person need not refer to or give information concerning an expunged charge when answering a question concerning:
(i) a criminal charge that did not result in a conviction; or
(ii) a conviction that the Governor pardoned.
(3) Refusal by a person to disclose information about criminal charges that have been expunged may not be the sole reason for:
(i) an employer to discharge or refuse to hire the person; or
(ii) a unit, official, or employee of the State or a political subdivision of the State to deny the person’s application.
(b) (1) A person who violates this section is guilty of a misdemeanor and on conviction is subject to a fine not exceeding $1,000 or imprisonment not exceeding 1 year or both for each violation.
(2) In addition to the penalties provided in paragraph (1) of this subsection, an official or employee of the State or a political subdivision of the State who is convicted under this section may be removed or dismissed from public service.
. In its brief the State mentions that appellant admitted to a violation of his probation in the prior case on November 12, 2008, in the Circuit Court for Howard County. This occurred after that nolle prosequi was entered in the case that is subject to the expungement dispute. There is no evidence of this in the appellate record and a review of the transcript of the expungement hearing demonstrates that the Circuit Court did not have such evidence either. Nevertheless, even if appellant did violate his probation, the outcome of this case would not be affected as a violation of probation is neither a conviction nor a pending criminal proceeding within the meaning of the expungement statute.
