State v. ScherzerState v. Scherzer
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- Before:
- Lockett
The defendant pled guilty to three counts of vehicular battery,
Patrick Scherzer, a former county commissioner in Wyandotte County, was charged with two counts of DUI; one count of driving a vehicle on a divided highway in the wrong direction, and six counts of vehicular battery of six different victims resulting from a traffic accident that occurred on December 21, 1992. Pursuant to a plea bargain, Scherzer pled guilty to three counts of vehicular battery. The State dismissed the remainder of the charges.
Prior to pleading guilty, Scherzer had challenged the constitutionality of the vehicular battery statute penalty requirement that a person is not eligible for release on probation, suspension or reduction of sentence, or parole until that person has served at least 90 days’ “imprisonment.” To support his argument, Scher-zer pointed out that aggravated vehicular homicide,
At sentencing, Scherzer sought to serve the 90 days of imprisonment by house arrest, and he argued that
The district court fined Scherzer $1,000 for each count and sentenced him to one year on each count, to be served concurrently. The district court then addressed Scherzer’s claims that the penalty imposed by 21-3405b was unconstitutional. The court reviewed the two statutes and their penalty requirements, then noted that vehicular battery required imprisonment prior to imposing other sentencing options. The State argued that the reason the legislature set the different penalties was that vehicular homicide is a class D felony and the offender could receive a longer sentence than a person convicted of a class A misdemeanor (vehicular battery). The district judge acknowledged the State’s argument but found that the legislature had merely overlooked the difference in the sentence requirements and stated it was “inconceivable . . . the legislature meant that if a person kills someone that they can be given house arrest but if they only injure someone they can’t be given house arrest.” The district judge found he would have to impose a harsher sentence for a misdemeanor than for a felony. He then applied State v. Freeman, 223 Kan. 362, 574 P.2d 950 (1978), for the test of whether the constitutional prohibition against cruel and unusual punishment was violated. The judge reasoned that under such circumstances the penalty provision of 21-3405b offended the constitutional prohibition against cruel and unusual punishment and would be unconstitutional. The judge opined that by reading the vehicular battery statute as allowing the use of house arrest as imprisonment, the statute passed the test in Freeman and was constitutional.
The State subsequently filed its notice of appeal in the Court of Appeals. The notice stated that the sentence allowing the defendant to serve the 90 days by house arrest instead of imprisonment violated the requirement of 21-3405b(b)(2). The same day, the State filed in the district court a motion to stay execution of Scherzer’s sentence. The State alleged that if the sentence was not stayed, the entire imprisonment portion of the sentence would be served before an appeal could be heard and the State would bé left without a remedy if the sentence imposed by the district court was found to be illegal. This was the first time the State had claimed that the sentence imposed by the district court was illegal. The district court did not rule on the motion.
A flurry of appellate activity followed. The State filed a motion in the Court of Appeals to stay the execution of the sentence until the appeal had been resolved. Neither the notice of appeal nor the docketing statement filed in the Court of Appeals stated the basis of or which appellate court had jurisdiction to hear the State’s appeal. On November 4, 1993, this court noted that the appeal had been filed in the wrong appellate court and ordered the case transferred under
JURISDICTION
The State characterizes its appeal as whether the sentence imposed by the district court is illegal. This court has previously accepted an appeal by the State alleging an illegal sentence, albeit without explaining the jurisdictional authority for our review of the sentence imposed. See
State v. Keeley,
236 Kan. 555, 694 P.2d 442 (1985). We note this court has general statutory jurisdiction to correct, modify, vacate, or reverse any act, order, or
DOES HOUSE ARREST CONSTITUTE “IMPRISONMENT”?
Was the district judge correct in determining that the legislature had merely overlooked the difference in the penalty imposed for aggravated vehicular homicide and vehicular battery? Did the legislature intend “that if a person kills someone that they can be given house arrest but if they only injure someone they can’t be given house arrest?”
A review of the legislative history of the vehicular battery statute supports the conclusion that imprisonment, under 21-3405b, was not intended to include house arrest.
The 1988 legislature, which authorized house arrest, L. 1988, ch. 115, § 7, also amended the aggravated vehicular homicide statute, L. 1988, ch. 47, § 3, and added the offense of vehicular battery, L. 1988, ch. 47, § 3, Ch. 47, § 1. The amendment to
This bill began as a simple 15-line bill in the Senate Judiciary Committee that created the new crime of causing injury while driving under the influence of alcohol or drugs and made it a class E felony. The committee then amended the designation of the crime to vehicular battery and dropped the penalty to a class A misdemeanor. The committee of the whole in the Senate then split the offense into two degrees — the first, a class E felony, involved violations of
The bill was further amended in conference committee. The conference report signed by the six members of the conference committee added back in the 90 days’ minimum imprisonment and also included reference to house arrest as a permissible means of sewing the 90 days’ imprisonment. The conference committee report also added similar language to 21-3405a. The version of the conference committee report shown as being approved by a majority of the House matches the conference committee report. The version of the conference committee • report shown as being approved by a majority of the Senate differs from the House journal version and the signed conference committee report in that the house arrest language is absent from the penalty provisions for the offenses of vehicular battery and aggravated vehicular homicide.
After both houses passed S.B. Ill, it was engrossed, then enrolled and sent to the governor to be signed. The version that was engrossed and then enrolled does not include reference to house arrest for the offense of vehicular battery but does for aggravated vehicular homicide. The governor signed a version of the bill that did not match the conference committee version.
The legislature subsequently amended
Scherzer claims that house arrest and work release are similar forms of imprisonment. Scherzer points out that Att’y Gen. Op.
On three other occasions, the Attorney General has issued similar opinions. See Att’y Gen. Op. Nos. 83-123, 92-2, and 93-20. Opinion 92-2, in part, states at p. 4:
“This office has previously opined that ‘the term “imprisonment” includes not only actual incarceration in jail, but may refer to any situation in which the defendant’s liberty is restrained and he or she is subject to additional sanctions should an escape be made.’ ”
Opinion 93-20 concludes at p. 3:
“[T]o satisfy the mandatory imprisonment requirements imposed byK.S.A. 8-1567, the individual must be in custody. . . . [Cjonstant surveillance by law enforcement officials in a jail is not required .... The determining factor is the intent of the court and law enforcement officials to retain custody and control of the prisoner.”
An opinion of an attorney general, while sometimes persuasive, is not binding on this court. Greenwood v. Estes, Savings & Loan Commissioner, 210 Kan. 655, 661, 504 P.2d 206 (1972).
In State v. Martin, 14 Kan. App. 2d 138, 783 P.2d 1316 (1989), rev. denied 246 Kan. 769 (1990), the same issue was raised as to whether the statutory requirement of imprisonment for at least 90 days for a third conviction of DUI could be satisfied by being placed in a work release program. The Court of Appeals noted work release was not specifically mentioned in the DUI penalty provision and the term of imprisonment was not defined. The Court of Appeals applied our rationale in State v. Meredith, 236 Kan. 866, 696 P.2d 403 (1985), that time spent in an alcohol treatment program when the individual is not in custody or control of law enforcement officials does not satisfy the imprisonment requirement and determined work release did not qualify as imprisonment. We agree with the Martin court’s conclusion that work release is not imprisonment.
We note that the criminal code resulted from a massive revision undertaken in the 1960s, which was at least partly driven by a desire to eliminate inconsistencies in the existing crimes act. Kansas Judicial Council Special Bulletin: Criminal Code, p. 7 (April 1968). The sentencing article of the criminal code is to
“be liberally construed to the end that persons convicted of crime shall be dealt with in accordance with their individual characteristics, circumstances,needs, and potentialities as revealed by case studies; that dangerous offenders shall be correctively treated in custody for long terms as needed; and that other offenders shall be dealt with by probation, suspended sentence, fine or assignment to a community correctional services program whenever such disposition appears practicable and not detrimental to the needs of public safety and the welfare of the offender, or shall.be committed for at least a minimum term within the limits provide by law.” K.S.A, 21-4601.
The manifest purpose of the criminal code in general and the sentencing article in particular is to avoid inconsistencies and to allow individualized sentencing dispositions whenever practicable.
Vehicular battery,
“(b) Vehicular battery is a class A misdemeanor for which the offender, if the crime is committed while committing a violation ofK.S.A. 8-1567 and amendments thereto or the ordinance of a city or resolution of a county in this state which prohibits any acts prohibited by that statute shall:
(1) Be fined not less than $1,000;
(2) not be eligible for release on probation, suspension or reduction of sentence or parole until the person has served at least 90 days’ imprisonment;
(3) be required, as a condition of any grant of probation, suspension or reduction of sentence, parole or other release, to enter into and successfully complete an alcohol and drug safety action program or a treatment program as provided inK.S.A. 8-1008 and amendments thereto, or both the education and treatment programs; and
(4) have driving privileges suspended, or suspended and restricted, as provided byK.S.A. 8-1014, and amendments thereto.”
Class A misdemeanors are punishable by a jail term of up to one year.
The interpretation of a statute is a question of law, and this court’s standard of review is de novo. See
State v. Donlay,
253 Kan. 132, 133-34, 853 P.2d 680 (1993). Statutory construction involves the application of a hierarchy of rules. The initial inquiry into this question must begin with the text of the statute. The rule of statutory construction to which all other rules are sub
The State argues that the ordinary meaning of imprisonment is to put someone in prison or jail. In essence, the State is asserting the provision for house arrest in
Webster’s Third New International Dictionary 1137 (1986) defines imprison: “1: to put in prison: confine in jail 2: to limit, restrain, or confine as if by imprisoning.” Black’s Law Dictionary 757, (6th Ed. 1990) defines imprisonment as “[t]he act of putting or confining a person in prison. The restraint of a person’s personal liberty.”
‘Imprisonment’ shall include any restrained environment in which the court and law enforcement agency intend to retain custody and control of a defendant and such environment has been approved by the board of county commissioners or the governing body of a city.” L. 1993, ch. 291, § 270(2).
Scherzer does not challenge the State’s definition of the term imprisonment. Instead, he asserts the fact the vehicular battery statute does not expressly prohibit house arrest as a form of imprisonment is more important than the fact it does not expressly provide for it. He points out that the house arrest statute,
The legislature recognized tire use of house arrest when it granted the court or the Secretary of Corrections the authority to implement a house arrest program for defendants or inmates sentenced by the court or in the custody of the Secretary of Corrections when it enacted
Although the legislature had not defined imprisonment prior to 1992, it had set out authorized dispositions for a person who had been found guilty of a crime. The following review of several sentencing statutes indicates that the legislature does not intend house arrest to be imprisonment.
Other statutes indicate that house arrest is a condition of probation.
“(e) On a second conviction of a violation of this section, a person shall be sentenced to not less than 90 days nor more than one year’s imprisonment and fined not less than $500 nor more than $1,000. The five days’ imprisonment mandated by this .subsection may be served in a work release program only after such person has served 48 consecutive hours’ imprisonment, provided such work release program requires such person to return to confinement at the end of each day in the work release program. . . .
“(f) On the third or a subsequent conviction of a violation of this section, a person shall be sentenced to not less than 90 days nor more than one year’s imprisonment and fined not less than $1,000 nor more than $2,500. Except as provided in subsection (g), the person convicted shall not be eligible for release on probation, suspension of reduction of sentence or parole until the person has served at least 90 days’ imprisonment. . . . The 90 days’ imprisonment mandated by this subsection may be served in a work release program only after such person has served 48 consecutive hours’ imprisonment, provided such work release program requires such person to return to confinement at the end of each day in the work release program.’’ (Emphasis added).
IS K.S.A. 1992 SUPP. 21-3405b UNCONSTITUTIONAL?
Having determined that the required minimum period of imprisonment in
In
State v. Freeman,
223 Kan. 362, 574 P.2d 950 (1978), Freeman attacked the constitutionality of
“(1) The nature of the offense and the character of the offender should be examined with particular regard to the degree of danger present to society; relevant to this inquiry are the facts of the crime, the violent or nonviolent nature of the offense, the extent of culpability for the injury resulting, and the penological purposes of the prescribed punishment;
“(2) A comparison of the punishment with punishments imposed in this jurisdiction for more serious offenses, and if among them are found more serious crimes punished less severely than the offense in question the challenged penalty is to that extent suspect; and
“(3) A comparison of the penalty with punishments in other jurisdictions for the same offense.”
The Freeman court, after comparing the statutory penalty for second-degree murder, applied the third prong, which compares the Kansas penalty with penalties from other jurisdictions, found the other jurisdictions’ penalties were as great as if not greater than the Kansas penalty, and upheld the constitutionality of 21-4618. 223 Kan. at 367-68.
Of the three prongs of the analysis to determine whether punishment is cruel and unusual, only the second prong is raised by Scherzer. He claims that by comparing the punishment set out
The concern addressed in Freeman is disparity in the length of the sentence, not the place of sei‘ving the sentence. Cruel and unusual punishment involves punishment that shocks the conscience or “which seems inhumane or barbarous.” The legislature is the branch of government entrusted with the power to set the punishment for a crime. State v. Reed, 248 Kan. 792, 798, 811 P.2d 1163 (1991). The fact the legislature chose to allow house arrest for aggravated vehicular homicide offenders, and not for vehicular battery offenders, does not rise to the level of cruel and unusual punishment.
WAS THE SENTENCE IMPOSED ILLEGAL?
During oral argument, the State conceded Scherzer’s sentence is illegál only if house arrest is not a form of imprisonment. We have defined an “ ‘illegal sentence’ [as] either a sentence imposed by a court without jurisdiction; a sentence which does not conform to the statutory provision, either in the character or the term of the punishment authorized; or a sentence which is ambiguous with respect to the time and manner in which it is to be served.” State v. Ruff, 252 Kan. 625, 628, 847 P.2d 1258 (1993). The jurisdiction of the court to impose the sentence or the ambiguity of the sentence is not at issue in this case. The sole challenge is whether this sentence does not conform to the statutory provisions.
Reversed and remanded for correction of the sentence.