United States v. SalernoUnited States v. Salerno
Dеfendants-appellants Carmine Pérsico and Gennaro Langella appeal from an order of the United States District Court for the Southern District of New York, Richard Owen, Judge, entered April 16, 1991 that denied their motion pursuant to 28 U.S.C. § 2255 (1988) to vacate their convictions affirmed in United States v. Salerno,
Pérsico and Langella were initially convicted of substantive and conspiracy violations of the Racketeer Influenced and Corrupt Organizations Act (“RICO”), 18 U.S.C. § 1962(c) and (d) (1988), and related crimes in the Pérsico case. See Persico,
On this appeal, Pérsico and Langella assert that the Supreme Court’s subsequent decision in Grady v. Corbin,
Background
The factual background for the convictions giving rise to this appeal has been recounted in numerous prior opinions, see, e.g., Salerno,
A. The Two Indictments.
The Pérsico indictment charged Pérsico, Langella, and twelve other defendants with participating and conspiring to participate in the affairs of an enterprise “often known as the Colombo Organizеd Crime Family of La Cosa Nostra” through a pattern of racketeering activity in violation of 18 U.S.C. § 1962(c) and (d) (1988). The alleged pattern, insofar as it involved participation by Pérsico and Langella, consisted of a Hobbs Act conspiracy to extort money from certain New York City construction companies engaged in the concrete-pouring business, in violation of 18 U.S.C. § 1951 (1988) (Pérsico and Langella); extortion of ten named construction companies in violation of § 1951 (Langella); receipt of illegal payoffs from the same ten construction companies in violation of 29 U.S.C. § 186(b)(1) (1988) (Langella); embezzlement of union funds in violation of 29 U.S.C. § 501(c) (1988) (Langella); various acts of bribery of public officials in violation of 18 U.S.C. § 201(b)(1) & (3) and (c)(1)(A) (1988) (Pérsico and Langella); loansharking and loansharking conspiracy in violation of 18 U.S.C. §§ 891-892 and 894 (1988) (Langella); and conduct of an illegal gambling business in violation of 18 U.S.C. § 1955 (1988) and N.Y.Penal Law §§ 225.00 tо .20 (McKinney 1989) (Langella). These counts also charged Langella with participation and conspiracy to participate in the affairs of the named enterprise through collection of unlawful debt in violation of 18 U.S.C. § 1962(c) and (d) (1988).
In addition, the Pérsico indictment alleged parallel counts of conspiracy to extort and bribery of a public official against both Pérsico and Langella, and of extortion, receipt of illegal payoffs, loansharking and loansharking conspiracy, and conduct of an illegal gambling business against Langella.
The Commission indictment charged Pérsico, Langella, and seven other defendants with conspiring to participate and participating in the affairs of an enterprise “often described as the ‘Commission’ of La Cosa Nostra” through a pattern of racketeering activity, in violation of 18 U.S.C. § 1962(c) and (d) (1988). Pérsico, Langella, and Ralph Scopo werе the only defendants named in both indictments.
The Commission indictment primarily charged crimes relating to an extortionate conspiracy that “controlled the allocation of contracts to pour concrete on construction jobs where concrete costs exceeded two million dollars.” The contracts were allocated to a group of construction companies engaged in that activity and known as the “Club.” The alleged pattern of racketeering activity, insofar as it involved participation by Pérsico and Langella, consisted of a Hobbs Act conspiracy to extort money from “Club” members in violation of 18 U.S.C. § 1951 (1988), and fifteen separate extortions and attempted extortions in violation of § 1951.
The indictment further charged Pérsico and Langella with a parallel count of conspiracy to extort in violation of 18 U.S.C. § 1951 (1988); fifteen parallel counts of extortion and attempted extortion in violation of § 1951; and six corresponding counts of receiving illegal payoffs in violation of 29 U.S.C. § 186(b)(1) (1988).
The government furnished a bill of particulars in the Pérsico case that further specified the objectives and victims of the extortionate scheme. The bill of particulars stated that the conspiracy charged in
Before the Pérsico trial began, Pérsico, Langella, and Scopo moved to sever the racketeering act and related count that charged a conspiracy to extort from the Pérsico indictment and join them for trial with the indictment in the Commission case. After reviewing both indictments, the district court denied the motion, ruling that the indictments charged two separate extortionate schemes. See United States v. Persico,
B. Direct Proceedings.
In the Pérsico trial, the government offered proof of the Commission conspiracy in order to delineate the bounds of the conspiracy charged against the Persico defendants and to provide background information for certain taped conversations. See Langella,
On June 13, 1986, the jury in the Pérsico case returned verdicts convicting Pérsico and Langella of all racketeering acts and substantive counts arising out of the Colombo Family’s extortionate scheme. Id. at 188. Pérsico and Langella then moved to dismiss the indictment of them in the Commission case on the ground that the Double Jeopardy Clause barred their further prosecution in view of their convictions in Pérsico. Id. The district court denied the motion, and we affirmed. Id. at 188-90.
Pérsico and Langella contended in Langella that there was only one extortionate conspiracy concerning the concrete-pouring business, and that the government used two million dollars as an arbitrary dividing line to separate a single conspiracy and prosecute it as two separate conspiracies. Id. at 188. We rejected that view. We noted that whether successive prosecutions violate double jeopardy turns upon the “ ‘ “allowable unit of prosecution” ’ ” as defined by Congress. Id. (quoting Sanabria v. United States,
We then held that the two indictments involved different enterprises (the Colombo family and the Commission) and different patterns of racketeering activity.
although there is some identity of participants, statutory offenses, time, and place, we believe the different nature and delineated scope of each racketeering activity are dispositive on this issue. The two indictments address two highly formalized and rigidly structured enterprises, each clearly demarcated with distinct areas of authority and operation. The convictions of Langella and Pérsico for their participation in the affairs of the Colombo Family in no manner bars the current prosecution for their alleged participation in the affairs of the Commission.
Id. at 190.
On November 19, 1986, Persico and Langella were convicted on all counts considered by the jury in the Commission case. On October 27, 1987, we affirmed their earlier convictions in the Persico case. Persico,
C. Habeas Corpus Proceedings.
On May 29, 1990, the Supreme Court decided Grady v. Corbin,
[T]he Double Jeopardy Clause bars any subsequent prosecution in which the government, to establish an essential element of an offense charged in that prosecution, will prove conduct that constitutes an offense for which the defendant has already been prosecuted. This is not an “actual evidence” or “same еvidence” test. The critical inquiry is what conduct the State will prove, not the evidence the State will use to prove that conduct.
Persico and Langella then moved to vacate their convictions in the Commission case pursuant to 28 U.S.C. § 2255 (1988), contending that they were convicted of the “same conduct” in the Commission case as in the Pérsico case. The government argued that because Grady announced a “new rule,” it should not be applied retroactively to Pérsico and Langella in a collateral proceeding after their convictions became final. The government further contended that even if Grady’s “same conduct” test were applied, the convictions of Pérsico and Langella in the Commission case should not be disturbed.
On April 16, 1991, the district court denied the § 2255 motion, stating that:
[Defendants’ double jeopardy challenges were rejected because the RICO counts in the Persico and Salerno indictments were found to allege two sеparate and distinct patterns of racketeering activity. Therefore, whatever other ramifications Grady may have on Double Jeopardy analysis of RICO prosecutions, ... it does not change the analysis applicable here.
Persico and Langella appeal that decision.
Discussion
Persico and Langella contend on appeal that: (1) Grady did not announce a new rule, so the Grady doctrine must be applied in this collateral proceeding; and (2) such application requires reversal of their convictions in the Commission case.
A. The “New Rule” Issue.
“[A] rule of constitutional law established after a petitioner’s conviction has become final may not be used to attack the conviction on federal habeas corpus unless the rule falls within one of two narrow exceptions.” Sawyer v. Smith,
The opening paragraph of Grady states succinctly the progression in double jeopardy jurisprudence effected by that decision:
We have long held, see Bloekburger v. United States,284 U.S. 299 , 304,52 S.Ct. 180 , 182,76 L.Ed. 306 (1932), that the Double Jeopardy Clause of the Fifth Amendment prohibits successive prosecutions for the same criminal act or transaction under two criminal statutes whenever each statute does not “requir[e] рroof of a fact which the other does not.” In Illinois v. Vitale,447 U.S. 410 ,100 S.Ct. 2260 ,65 L.Ed.2d 228 (1980), we suggested that even if two successive prosecutions were not barred by the Bloekburger test, the second prosecution would be barred if the prosecution sought to establish an essential element of the second crime by proving the conduct for which the defendant was convicted in the first prosecution. Today we adopt the suggestion set forth in Vitale. We hold that the Double Jeopardy Clаuse bars a subsequent prosecution if, to establish an essential element of an offense charged in that prosecution, the government will prove conduct that constitutes an offense for which the defendant has already been prosecuted.2
sit * Sit * * *
2 This issue has been raised before us twice in recent years without resolution. See Fugate v. New Mexico,470 U.S. 904 ,105 S.Ct. 1858 ,84 L.Ed.2d 777 (1985) (affirming by an equally divided Court); Thigpen v. Roberts,468 U.S. 27 ,104 S.Ct. 2916 ,82 L.Ed.2d 23 (1984) (deciding on alternate grounds).
Grady,
Pérsico and Langella contend that the result in Grady was dictated by prior precedent, and thus the Grady rule should be applied here. This argument, however, cannot survive an examination of the Court’s expliсit recital of the genesis of the Grady rule, which establishes that Vitale “suggested” the Grady outcome in 1980, the issue was then raised in Thigpen (1984) and Fugate (1985) without resolution, and Grady finally adopted the previously “suggested” rule in 1990. Cf. Butler,
It is thus clear that Grady established a new rule which can be applied in this case only if it falls within “ ‘one of two narrow exceptions’ ” to the general prohibition against the retroactive application of new rules in collateral proceedings. Sawyer,
The first of [the exceptions] applies to new rules that place an entire category of primary conduct beyond the reach of the criminal law, Teague, supra, 489 U.S., at [311], 109 S.Ct., at [1075], or new rules that prohibit imposition of a certain type of punishment for a class of defendants because of their status or offense, Penry, supra 492 U.S., at [330], 109 S.Ct. at [2953]____ The second Teague exception applies to new “watershed rules of criminal procedure” that are necessary to the fundamental fairness of the criminal proceeding. Saffle, supra, 494 U.S., at [495], 110 S.Ct., at [1263]; Teague, supra, 489 U.S., at [311], 109 S.Ct., at [1075].
Sawyer,
Persico’s reply brief directs us to McIntyre, in which the Eighth Circuit concluded that Grady falls within the first of these exceptions, stating:
The protection afforded by the double jeopardy clause operates at an elemental level. The purpose of the clause is not to ensure the fairness of the trial, but to prevent the trial from taking place at all. See Robinson v. Neil,409 U.S. 505 , 509,93 S.Ct. 876 , 878,35 L.Ed.2d 29 (1973). Because it bars an unconstitutional prosecution, a rule concerning double jeopardy is analogous to the rule discussed in Penry, which would have barred the imposition of an unconstitutional punishment. See Penry,492 U.S. at 329-30 ,109 S.Ct. at 2952-53 . It thus follows that the prohibition on double jeopardy is a “eategorial guarantee[] accorded by the Constitution.” See Butler,110 S.Ct. at 1218 . We therefore conclude that a rule concerning double jeopardy, such as the Grady rule, falls under the first Teague exception and must be accorded full retroactive effect.
As we have observed, McIntyre has been vacated and remanded by the Supreme Court for reconsideration in light of Felix. See supra note 2. In any event, we disagree with the Eighth Circuit’s analysis of this issue.
McIntyre does not conclude that Grady “place[s] an entire category of criminal conduct beyond the reach of the criminal law” within the meaning of the Sawyer formulation, and it is clear that Grady does not do so. See Saffle,
[A] new rule placing a certain class of individuals beyond the State’s power to punish by death is analogous to a new rule placing certain conduct beyond the State’s power to punish at all. In both cases, the Constitution itself deprives the State of the power to impose a certain penalty____
Penry,
It seems to us that Penry effects a rather carefully limited expansion of the first “primary conduct” exception, and that McIntyre inappropriately puts Grady into the Penry category. The rule established in Grady doеs not immunize primary conduct from overall, or any specific, criminal punishment. Manifestly, the offenses for which Persico and Langella were convicted remain illegal after Grady. Grady would establish, at most, that their admittedly criminal conduct cannot be prosecuted in separate trials. This, we believe, is a procedural matter properly tested under the second, rather than first, exception to the prohibition against retroаctive application of new rules.
To reiterate, the second exception applies to new “ ‘watershed rules of criminal procedure’ implicating the fundamental fairness and accuracy of the criminal proceeding.” Saffle,
In our view, the rule established in Grady does not satisfy this standard. Although one of the justifications for the new rule in Grady was to guard against “giv[ing] the State an opportunity to rehearse its presentation of proof, thus increasing the risk of an erroneous conviction,” Grady,
Even assuming enhanced accuracy, furthermore, Sanders (and the predecessor Court decisions that it invokes) requires that in order to qualify under the second exception, a new rule must also alter the general understanding of the bedrock procedural elements essential to the fairness of a proceeding. Grady explicitly built upon suggestions and intimations in prior double jeopardy rulings by the Court, and can hardly be described as the sort of fundamental departure that would satisfy this aspect of the Sanders rule.
In sum, the double jeopardy rule announced in Grady is a new rule that does not fit within either exception to the principle denying retroactive application of such rules on collateral review.
B. The Merits.
Recognizing that the only other circuit that has addressed the issue concluded that Grady should be applied retroactively, we deem it appropriate to add that even if the Grady rule were applied here, it would not benefit Persico and Langella. On the contrary, our ruling in Langella that the Pérsico and Commission cases involved “two highly formalized and rigidly structured enterprises, each clearly demarcated with distinct areas of authority and operation,”
Persico and Langella contend that the conduct for which they were convicted in the Commission trial was largely proven at the Pérsico trial, resulting also in a considerable duplication of evidence at the two trials. This is undoubtedly so, but the Grady criterion is whether “the government, to establish an essential element of an offense charged in [the Commission] prosecution, will prove conduct that constitutes an offense for which [Pérsico and Langella have] already been prosecuted [in the Persico case].” Grady,
The Court’s recent ruling in United States v. Felix, 503 U.S. -,
[I]t is clear that, no matter how much evidence of the Oklahoma transactions was introduced by the Government to help show Felix’ state of mind, he was not prosecuted in the Missouri trial for any offense other than the Missouri attempt offense with which he was charged.
Persico and Langella also contend that the two-million dollar dividing point between the Persico and Commission conspiracies represents an artificial division by the prosecution of a seamless single conspiracy: On the contrary, we agree with the Langella ruling that the prosecution simply followed a demarcatiоn that Pérsico, Langella, and their cohorts had indisputably established in the course of conducting their criminal affairs.
Conclusion
We affirm the order of the district court that denied defendants-appellants’ motion pursuant to 28 U.S.C. § 2255 (1988) to vacate their convictions in the Commission case.
Notes
. Scopo was severed from the Pérsico trial for medical reasons. He was convicted in the Commission case of RICO conspiracy and substantive RICO violations, conspiracy to extort, twelve counts of extortion or attempted extortion, and six counts of receiving illegal payoffs. See Salerno,
. On April 20, 1992, the Supreme Court vacated and remanded Calderone, Gambino, and a case considered infra, McIntyre v. Trickey,