This indictment, consisting of seven counts, charges the defendants Frank D. McKay, Stewart P. Blasier, Robert S. Mikesell and Stranahan, Harris & Company, Inc., with violations of Section 215 of the Criminal Code, 18 U.S.C.A. § 338, commonly referred to as the Mail Fraud Statute. The defendants have filed demurrers to each count of the indictment, pleas in abatement and motions for a bill of particulars.
The indictment alleges in substance that McKay was an influential and well-known political figure in the State of Michigan and was secretly employed by Stranahan, Harris and Company, a dealer in municipal bonds and other securities, to use his political influence in promoting the interests of that company; that Mikesell was vice-president of Stranahan, Harris and Company; that Blasier was employed by the corporation in charge of sales of bonds in Michigan and was an intimate business and personal friend of McKay; that on and after May 12, 1938, the City Commission of Grand Rapids, Michigan, had under consideration a proposal to construct an extension of the city water works system with the aid of a grant from the Public Works Administration; that the city’s share of the cost of this project, amounting to approximately $2,255,000 was to be raised by the sale of bonds which would be sold at public sale after notice by publication as required by law; that between January 1, 1938, and December 31, 1938, the defendants did devise a scheme and artifice to defraud and for obtaining money by means of false pretenses from the City of Grand Rapids and its citizens and taxpayers, which scheme and artifice is then described by the indictment substantially as follows. The defendants would induce the city of Grand Rapids to sell the bonds to Stranahan, Harris and Company under such circumstances and conditions as would deprive the City of the highest and best bid and unjustly enrich the defendants at the expense of the city, its citizens and taxpayers; that the sale would be made under the false pretense of a public sale but would in fact be a private sale; that the defendants caused to be prepared and published a notice of the bond sale which contained false *1010 statements and provided for unreasonable terms which would prevent bidding by anyone other than Stranahan, Harris and Company; that the defendants would discourage othеr dealers from bidding at the sale by making certain false representations, all of which would enable Stranahan, Harris and Company to purchase bonds at $1,010 per $1,000 bond, when.the true and reasonable • value of each such bond was $1,150; that following public protest and refusal of the Public Debt Commission of the State of Michigan to approve, said notice a second notice of bond sale to be held on August 22, 1938, was published about August 13,- 1938; that Stranahan, Harris and Company secretly formed a joint account with Paine, Webber and Company and B. J. Van Ingen & Company, dealers in securities, by which the defendants would cause two bids to be filed at the sale on August 22, 1938, namely, a high bid in the name of B. J. Van Ingen and Company without disclosing the interest or participation of the other two companies, and a lower bid in the name of Stranahan, Harris and Company and Paine, Webber and .Company without disclosing the interest of B. J. Van Ingen and Company; that should any bid be higher than the bid of Stranahan, Harris and Company and Paine, Webber and Company but lower than the bid of B. J. Van Ingen and Company the defendants would buy the bonds on the B. J. Van Ingen and Company bid, but if the bid of Stranahan, Harris and Company and Paine, Webber & Company should be next highest to the Van Ingen bid the defendants would secure the. withdrawal of the high bid of B. J. Van Ingen and Company and purchase the bonds on the bid of Stranahan, Harris and Company and Paine, Webber and Company; that the defendants would falsely represent to the City of Grand Rapids that the Van Ingen bid was a bona fide and unconditional bid whereas in truth it was not a bona fide and unconditional bid, but was conditioned upon the bid of Stranahan, Harris and Company and Paine, Webber and Company not being the second high bid; that the defendants by means of false representations Would cause the City of Grand Rapids to return to Van Ingen and Company its good •faith deposit of $22,550 and would fraudulently ■ deprive the City of Grand ’Rapids of the bénefit of the difference between the high bid and the-second’high’bid amounting to approximately $20,000; that the defendants having so purchased the bonds would resell them to the public at a profit which was unlawfully and corruptly increased beyond a normal and legitimate profit by the means of the scheme alleged, and that the profits so obtained would be apportioned among the defendants. Each of the counts then alleges a particular use of the mails by the defendants for the purpose of executing the scheme charged.
Demurrers to the Indictment.
In support of the demurrers the defendants contend that the allegations contained in the indictment do not show any violation of Section 215 of the Criminal Code. They urge upon the Court that the words in the statute “Whoever, having devised or intending to devise any scheme or artifice to defraud” are to be construed in their common-law sense, which means the exclusion of any schemе except one to perpetrate a common-law fraud; that in order for a common-law fraud to exist there must be either a misrepresentation of fact knowingly made, or a failure to disclose a material fact when a duty existed to do so, neither of which situations exist in the present case; that any misrepresentations made must be made to the victim, pointing out that in the present case any misrepresentations if made were made to parties. other than the victims. They, further point out that the defendants did not and cojild not cause the notice of bond sale to be prepared and published, as such acts were the result of independent action on the part of the city officials who are presumed to know the law and to have correctly performed their duty; that the terms inserted in the notice were not illegal ; that the motive on the part of the defendants to make a profit does not make the scheme a fraudulent one; that the withdrawal of the high offer to buy the bonds before it was accepted was the exercise of a legal right available to аny offeror negotiating for a contract; and that any participation by them in a joint bid with others, even without disclosure to the city to whom they owed no duty, was a proper and common practice and in no way illegal or fraudulent. They have filed an exhaustive brief in support, of this position .which is very ingenious in its presentment of the questions involved and its treatment,-of them. •
Defendants', main reliance is upon the proposition that “any scheme or artifice to defraud” .is restricted to a
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scheme containing the essential elements of common lаw fraud, which do not exist in the present case. Particular reliance is placed upon the decision in Fasulo v. United States,
“But the contention on his part is that the statute reaches only such cases as, at common law, would come within the definition of ‘false pretenses,’ in order to make out which there must be a misrepresentation as to some existing fact, and not a mere promise as to the future. * * *
“The question thus prеsented is one of vital importance, and underlies both cases. We cannot agree with counsel. The statute is broader than is claimed. Its letter shows this: ‘Any scheme or artifice to defraud.’ * * *
“In the light of this the statute must be read, and, so read, it includes everything designed to defraud by representations as to the past or present, or suggestions and promises as to the future. The significant fact is the intent and purpose.”
In Scheinberg v. United States, 2 Cir.,
It is probably advisable to also point out that even if it was required to allege and prove a misrepresentation in order to constitute the crime charged, the indictment actually charges several misrepresentations. The defendants are charged with having misrepresented that the first scheduled bond sale would be a public sale, when they well knew that it would be a private sale in which they would have no competition; .that the bids submitted by the syndicate at the sale of August 22, 1938, were independent competitive bids, although the defеndants knew they were collusive and conditional; and that the Public Works Administration contemplated the purchase of said bonds when no sale of the bonds to the Public Works Administrator was contemplated by the defendants, and the Public Works Administration had not expressed any willingness to purchase the bonds. The indictment alleges that the notice of bond sale was prepared by and caused -to be published by the defendants for the purpose of preventing bidding at the sale by any other bidder, which notice was false and fraudulent and known to so be by the defendants. Whethеr or not the proof will sustain these allegations is another question; in considering the demurrer they are accepted as the facts. It may also be true that each act on the part of the defendants, when considered separately by itself, may be entirely proper and within the legal rights of the defendants. But at the same time when a number of separate acts are combined for the purpose of accomplishing an illegal result, the combined effect of all the acts may be illegal. The allegations in the indictment must be considered as a whole. They
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charge the defendants with attempting to deprive the city of Grand Rapids of the highest and best bid for the bonds it was selling and to unjustly enrich the defendants at the expense of the city and of its citizens and taxpayers, all through the medium of the alleged scheme and artifice to defraud. If the combination of all the acts on the part of the defendants had this result, as is charged in the indictment, the innocent character of each individual act has very little significance. The intent of the ultimate accomplishment is what must be considered. Broоks v. United States, 8 Cir.,
The specific use of the mails relied upon in the first three counts of the indictment are on July 28, 1938, August 4, 1938, and August 5, 1938. The second and final bond sale was held on August 22, 1938. The mailings relied upon in Counts 4, 5, 6 and 7 of the indictment were on September 9, 1938, September 23, 1938, October 6, 1938, and October 10 1938. These last four mailings were communications between the members of the syndicate which bought the bonds and dealt with the furnishing of data and the reimbursement of expenses incurred in advertising the bonds to the public after they had been purchased. That necessarily occurred after the fraud if any existеd, had been practiced upon the city of Grand Rapids, its citizens and taxpayers. The scheme, if any existed, to secure the bonds at a price much under the fair and reasonable market value of the same and at a price which would unjustly enrich the defendants at the expense of the city and its taxpayers had been fully accomplished before the mailings referred to in each of the last four counts of the indictment. It is well settled that it is not sufficient that the use of the mails relied upon must merely relate to the scheme to defraud or be connected with it in some way, but it is essential that it must be for the purpose of executing the scheme. If the scheme or artifice to defraud as charged in the indictment was completed before the mail was used the offense denounced by Section 215 of the Criminal Code does not exist. Stapp et al. v. United States, 5 Cir.,
Pleas in Abatement.
The indictment was returned on November 28, 1940. A plea in abatement was filed by the defendant McKay on August 12, 1941, and by the defendants Stranahan, Harris and Company, and Mikesell on June 11, 1942. Thеy are similar in form and present the same issues. Section 88 of the Judicial Code, Section 168, Title 28 U, S.C.A., provides that terms of the District Court for the Eastern District of Michigan, Southern Division, in which this case is pending, shall be held at Detroit on the first Tuesdays in March, June and November. The pleas state in substance that the grand jury which returned the indictment was impaneled on March 5, 1940, to serve as a grand jury during the March 1940, term; that an order was entered by the Court on May 28, 1940, authorizing the March, 1940, term of grand jury to continue to sit during the June, 1940, term solely to finish investigations begun by it, during the March, 1940, term but not finished ; that an order was еntered by. the Court on October 29, 1940, authorizing the March, 1940, term grand jury to continue to sit during the November, 1940, term solely to finish investigations begun by it during the March, 1940, term but not finished in either the March or June, 1940, terms; that there was a regularly impaneled and acting grand jury throughout the June, 1940, term and also throughout the November, 1940, term; that the crimes
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and matters charged in the indictment were not considered or investigated by the grand jury at any time during the March, 1940, term, and were not considered or investigated until after the March, 1940,'term and at a time when the grand jury could not lawfully investigate matters charged in the indictment or return the indictment which was returned; that the grand jury which returned the indictment did so without jurisdiction, was acting under cover of an authority which was void and that the indictment returned constitutes only the charge of an aggregation of individuals which is not an indictment as a matter of law. The pleas further state specifically that the matters charged in the indictment could not have been investigated by the grand jury without the appearance and examination before them of certain designated persons, and that such persons did not appear and were not examined by thе grand jury until the latter part of August, 1940, which was beyond and after the regular March, 1940, term of Court for which the grand jury was impaneled to serve. In support of this plea the defendants claim that the authority, of the grand jury to return a valid indictment is governed entirely by statute; that the only authority which it had in the present case to act after the expiration of the March, 1940, term was that provided by Section 284 of the Judicial Code, Section 421, Title 28 U.S.C.A., which provides in part as follows: “A district judge may, upon request of the district attorney or of the grand jury or on his own motion, by order authorize any grand jury to continue to sit during the term succeeding the term at which such request is made, solely to finish investigations begun but not finished by such grand jury, but no grand jury shall be permitted to sit in all during more than eighteen months.” It is contended that since the investigation, resulting in the present indictment was not begun in the March term, 'there was no authority to begin it in the’ subsequent term during which the life of. the 'grand jury was continued, since the authority in the subsequent terms is restricted solely to investigations begun but not finished in the original term. The Government relies upon Sections 556 and 556a, Title 18 U.S.C.A. in answer to this contention. Section 556 provides that no indictmеnt shall be deemed insufficient, nor shall the trial or other proceedings thereon be affected by reason of any defect or imperfection in matter of form only, which shall not tend to the prejudice of the defendant. Section 556a, Title 18 U.S.C.A. provides: “No plea to abate nor motion, to quash any indictment upon the ground of irregularity in the drawing or impaneling of the grand jury or upon the ground of disqualification of a grand juror shall be sustained or granted unless such plea or motion shall have been filed before, or within ten days after, the defendant filing such plea or motion is presented for arraignment.” It further contends that independent of this statute, which was enacted in 1934, the common-law rule required a defendant to present a plea in abatement promptly. Agnew v. United States,
In the Court’s opinion neither of the statutes relied upon by the Government is applicable to the present case. It is well settled that Section 556, Title 18 U.S.C.A., refers to defects in form only. It was not the intent of the statutes to dispense with the rules.which require that the essential elements of a valid indictment must exist, but it authorizes the Court to disregard merely loose or inartificial forms of averment. Hagner v. United States,
Motions for Bill of Particulars.
The motions for a bill of particulars are supported by the affidavits of different counsel to the general effect that the indictment is in such general language and so framed that the defendants can not reasonably prepare their defense or know the range and character of the proof with which they mаy be confronted on the trial. It is well settled that in any criminal indictment the defendant is entitled to be advised of the specific acts with which he is charged in order that he may adequately prepare his defense, but he is not entitled to require the Government to disclose in detail the evidence upon which it expects to rely. The application for a bill of particulars is one which is addressed to the discretion of the trial court, which should keep in mind that the Government in filing a bill of particulars should not be unduly limited in the scope and presentation of its еvidence offered at the trial in support of the offense charged in the indictment. Wong Tai v. United States,
