Lead Opinion
¶1 —William Kurtz challenges the Court of Appeals decision affirming his conviction for possession
FACTS
¶2 In 2010, police executed a search warrant on petitioner William Kurtz’s home and found marijuana and marijuana plants. The State charged Kurtz with manufacturing and possession of marijuana. At trial, Kurtz attempted to present medical authorizations in support of a common law medical necessity defense and a statutory medical marijuana defense. The State moved in limine to prevent these defenses, contending that neither was available to him.
¶3 After reviewing the case law, the trial court refused to allow Kurtz to raise either defense. The jury found Kurtz guilty, and he appealed. The Court of Appeals affirmed the ruling as to the defenses but remanded on a separate issue relating to an improperly calculated offender score. Kurtz then petitioned this court for review, arguing that the common law medical necessity defense for marijuana continues to be an available defense, under case law and after the enactment of the Act.
ANALYSIS
¶4 Kurtz contends the trial court erred by not allowing him to present a common law medical necessity defense for his marijuana use. Specifically, he argues that the necessity
¶5 The common law medical necessity defense for marijuana was first articulated in State v. Diana, 24 Wn. App. 908, 916, 604 P.2d 1312 (1979), by Division Three of the Court of Appeals. In Diana, the defendant argued a defense of medical necessity when he was charged with possession of marijuana. Following a discussion of the common law necessity defense, the court recognized a medical necessity defense could exist as a defense to marijuana possession in very limited circumstances, relying in part on the legislature’s passage of the “Controlled Substances Therapeutic Research Act,” Laws of 1979, 1st Ex. Sess., ch. 176. Diana, 24 Wn. App. at 915-16. The court remanded for the trial court to determine whether the evidence presented supported the defense.
¶7 One month before the Williams opinion was published, the people passed Initiative 692, which was later codified in chapter 69.51A RCW as the Act. The Act declared that the medical use of marijuana by qualifying patients is an affirmative defense to possession of marijuana. Former RCW 69.51A.040 (1999).
¶8 We first address whether the Court of Appeals in Williams correctly concluded that Seeley implicitly abolished the common law medical necessity defense. In Seeley, we considered whether the legislature’s classification of marijuana as a schedule I substance under the Uniform Controlled Substances Act (UCSA), chapter 69.50 RCW, violated the Washington Constitution. Seeley, 132 Wn.2d at 786. Although the UCSA authorizes the board of pharmacy to schedule or reschedule substances considering, among other factors, the effect of the substance under former RCW 69.50.201 (1998), the legislature made the initial classification of marijuana as a schedule I substance.
¶9 In rejecting the medical necessity defense for marijuana, the Williams court stated that Seeley “makes it clear that the decision of whether there is an accepted medical use for particular drugs has been vested in the Legislature by the Washington Constitution.” Williams, 93 Wn. App. at 347. This in incorrect. In fact, we stated that “the determination of whether new evidence regarding marijuana’s potential medical use should result in the reclassification of
¶10 Our conclusion is bolstered by the passage of chapter 69.51A RCW, which evidences the legislature’s
¶11 We now turn to the question of whether the Act supersedes the common law medical necessity defense for marijuana. In general, Washington is governed by common law to the extent it is not inconsistent with constitutional, federal, or state law. Potter v. Wash. State Patrol, 165 Wn.2d 67, 76, 196 P.3d 691 (2008). “However, we are hesitant to recognize an abrogation or derogation from the common law absent clear evidence of the legislature’s intent to deviate from the common law.” Id. at 76-77. When “the provisions of a later statute are so inconsistent with and repugnant to the prior common law that both cannot simultaneously be in force, the statute will be deemed to abrogate the common law.” State ex rel. Madden v. Pub. Util. Dist. No. 1 of Douglas County, 83 Wn.2d 219, 222, 517 P.2d 585 (1973) (citing State v. Wilson, 43 N.H. 415 (1862)).
¶12 The Act contains no language expressing a legislative intent to abrogate the common law. To the contrary, a 2011 amendment to chapter 69.51A RCW added that “[n]othing in this chapter establishes the medical necessity or medical appropriateness of cannabis for treating terminal or debilitating medical conditions as defined in RCW 69.51A.010,” suggesting the legislature did not intend to supplant or abrogate the common law. RCW
¶13 The State argues, however, that because the legislature spoke directly to the purpose of the common law necessity defense, it intended to abrogate the common law. The State relies on two United States Supreme Court cases for this rule of construction, City of Milwaukee v. Illinois, 451 U.S. 304, 315, 101 S. Ct. 1784, 68 L. Ed. 2d 114 (1981), and Mobil Oil Corp. v. Higginbotham, 436 U.S. 618, 625-26, 98 S. Ct. 2010, 56 L. Ed. 2d 581 (1978). These cases concern the test for determining whether federal acts displace federal common law and general maritime law and do not address the effect of legislative action on Washington’s common law. Milwaukee, 451 U.S. at 315-17; Mobil Oil, 436 U.S. at 625-26. As Milwaukee notes, “Federal courts, unlike state courts, are not general common-law courts and do not possess a general power to develop and apply their own rules of decision”; rather, federal common law is developed in only restricted instances. 451 U.S. at 312-13 (citing Erie R.R. v. Tompkins, 304 U.S. 64, 78, 58 S. Ct. 817, 82 L. Ed. 1188 (1938)). The federal common law analysis proceeds on the principle that Congress, not federal courts, is to articulate the standards to be applied as a matter of federal law. Id. at 316. In contrast, common law is not a rarity among the states and is often developed through the courts, as was the case with medical necessity for marijuana. Diana, 24 Wn. App. at 916. Indeed, Washington has several statutory provisions addressing the authority of common law. See, e.g., RCW 4.04.010; RCW 9A.04.060. Because the federal and state schemes differ, federal cases are unhelpful. In
¶14 The State also contends that each element of the medical necessity defense is addressed by the Act and establishes inconsistencies between the two. As to the requirement that a defendant provide medical testimony to support his belief that use of marijuana was medically necessary, the State notes that the Act similarly requires a defendant to obtain authorization for use from a qualifying physician. As to the balancing of harms requirement, the state contends this element is met by the Act’s limitation on the quantity of marijuana that a patient may possess. Responding to the final requirement that no drug is as effective at treatment, the State notes an individual under the Act is not required to show there are no other drugs as effective. While some of these elements are indeed similar to the common law defense, they are not identical and are not clearly inconsistent. For example, the fact that the Act does not require proof that no other drug is as effective simply means the Act is broader in that respect. Other elements in the Act may overlap with the common law defense but are not identical or “so inconsistent with and repugnant to the prior common law that both cannot simultaneously be in force.” Madden, 83 Wn.2d at 222.
¶15 The State points to other aspects of the Act that it views as “obvious inconsistencies.” Suppl. Br. of Resp’t at 11. For example, the State hypothesizes that an individual who obtains authorization by an unqualified physician would not satisfy the Act but would be able to assert the common law defense. The State also posits that an individual who possesses a certain amount of marijuana may not have a defense under the Act but would under the common law. While correct, these examples do not show inconsistencies, but rather demonstrate that the common law may apply more broadly in some circumstances.
¶16 The State also asserts that the statutory language and initiative make it clear that the Act was intended to
¶17 Moreover, in 2011 the legislature amended the Act making qualifying marijuana use a legal use, not simply an affirmative defense. RCW 69.51A.040. A necessity defense arises only when an individual acts contrary to law. Under RCW 69.51A.005(2)(a), a qualifying patient “shall not be arrested, prosecuted, or subject to other criminal actions or civil consequences under state law based solely on their medical use of cannabis, notwithstanding any other provision of law.” One who meets the specific requirements expressed by the legislature may not be charged with committing a crime and has no need for the necessity defense. Only where one’s conduct falls outside of the legal conduct of the Act would a medical necessity defense be necessary. The 2011 amendment legalizing qualifying marijuana use strongly suggests that the Act was not intended to abrogate or supplant the common law necessity defense.
¶18 Finally, the State contends the legislature is assumed to be aware of the common law under Madden, 83 Wn.2d at 222, and would have expressly saved the common
¶19 When a question arises as to whether a statute abrogates the common law, there is likely to be overlap. See In re Estate of Tyler, 140 Wash. 679, 689, 250 P. 456 (1926) (“ ‘No statute enters a field which was before entirely unoccupied.’ ” (quoting Henry Campbell Black, Handbook on Construction and Interpretation of the Laws 233 (1896))). But under our holdings, the relevant question is whether the common law and statute are inconsistent or the legislature clearly intended to deviate from the common law. Where, as here, there was no statement in the statute expressing such intent and no inconsistencies between the two, we hold that the common law defense of medical necessity continues to be an available defense if there is evidence to support it.
¶20 The State argues, though, that even if the necessity defense is theoretically available, Kurtz could not rely on the defense because the Act provides a legal avenue for his marijuana use. As discussed, the Court of Appeals in Diana provided a three part summary of the marijuana necessity defense. 24 Wn. App. at 917. In summarizing the rule, Diana referred to two authorities: the Handbook on Criminal Law and the Model Penal Code (MPC). Diana, 24 Wn. App. at 913-14 (citing Wayne R. LaFave & Austin W. Scott, Jr., Handbook on Criminal Law 381-83, 386 (1972); Model Penal Code § 3.02 (Proposed Official Draft (1962))). Under the MPC, conduct an actor believes is necessary to avoid a harm or evil to himself or another is justifiable if:
(a) the harm or evil sought to be avoided by such conduct is greater than that sought to be prevented by the law defining the offense charged; and
(b) neither the Code nor other law defining the offense provides exceptions or defenses dealing with the specific situation involved; and
(c) a legislative purpose to exclude the justification claimed does not otherwise plainly appear.
CONCLUSION
¶22 We hold that the common law medical necessity defense for marijuana remains available following the Medical Use of Marijuana Act. We remand to the trial court for further proceedings consistent with this opinion.
The Medical Use of Marijuana Act was changed to the Washington State Medical Use of Cannabis Act in 2011. RCW 69.51A.900.
The charges in Diana were tried to the bench. Diana, 24 Wn. App. at 913.
The legislature has since amended the statute to state that such a use “does not constitute a crime.” RCW 69.51A.040.
This language has since changed to state that the legislature finds that “[t]here is medical evidence that some patients with terminal or debilitating medical conditions may, under their health care professional’s care, benefit from the medical use of cannabis.” RCW 69.51A.005(l)(a).
In State v. Butler, 126 Wn. App. 741, 747, 750, 109 P.3d 493 (2005), the Court of Appeals concluded that Williams was still good law and that, in any event, the Act superseded any common law necessity defense.
The UCSA was amended in 2013 to reflect the new “Pharmacy Quality Assurance Commission.” This was not a substantive change.
In Williams, the court noted that substances are classified as schedule I if there “is (1) a high potential for abuse, (2) no currently accepted medical use in treatment in the United States, and (3) no accepted safety for use in treatment under medical supervision” under former RCW 69.50.203(a) (1993). 93 Wn. App. at 345. However, the court failed to discuss former RCW 69.50.203(b), which allows the board of pharmacy to place a substance in schedule I without the aforementioned findings, if the substance is “controlled under Schedule I of the federal Controlled Substances Act by a federal agency as the result of an international treaty, convention, or protocol.” Marijuana is under Schedule I of the federal Controlled Substances Act and is a “substance” under the Single Convention on Narcotic Drugs of 1961, to which the United States is a party. 21 U.S.C. § 812(c) sched. I, (c)(10); Single Convention on Narcotic Drugs, opened for signature Mar. 30,1961, No. 6298,18 U.S.T. 1407,1967 WL 90243,1961 U.S.T. LEXIS 8. Thus, the legislature’s initial determination to classify marijuana as a schedule I substance does not necessarily rest on a determination that there is no accepted medical use.
As originally codified, this section stated, “The people of Washington state find that some patients with terminal or debilitating illnesses, under their physician’s care, may benefit from the medical use of marijuana.” Former RCW 69.51A.005.
The dissent contends that the legislature rejected § 3.02(1) of the MPC, and so it was inappropriate for courts to adopt and apply the necessity defense. Dissent at 484. The dissent’s argument is speculative at best. Although the judiciary committee proposed adding a “justification” defense that closely mirrored § 3.02(1), there is no legislative history explaining why that provision was not adopted. Judiciary Comm, of Wash. Legis. Council, Legislative Council’s Judiciary Committee, Revised Washington Criminal Code at ii (Dec. 3, 1970). “[Wlhen the Legislature rejects a proposed amendment ... we will not speculate as to the reason for the rejection.” Spokane County Health Dist. v. Brockett, 120 Wn.2d 140, 153, 839 P.2d 324 (1992) (citing Wilmot v. Kaiser Alum. & Chem. Corp., 118 Wn.2d 46, 63-64, 821 P.2d 18 (1991)). In the absence of any statutory language or history, we should not assume that the legislature rejected the necessity defense when it chose not to adopt § 3.02(1). Further, the dissent’s assertion that Diana and this opinion rely heavily on § 3.02(1) is inaccurate. The defense adopted in Diana was derived from several sources, including § 3.02(1). Diana, 24 Wn. App. at 914-15 (citing, e.g., LaFave & Scott, supra, at 381-83, 386; United States v. Holmes, 26 F. Cas. 360 (C.C.E.D. Pa. 1842) (No. 15,883); United States v. Ashton, 24 F. Cas. 873 (C.C.D. Mass. 1834) (No. 14,470); People v. Lovercamp, 43 Cal. App. 3d 823, 118 Cal. Rptr. 110 (1974)).
Dissenting Opinion
¶23 (dissenting) — While I sympathize with William Kurtz’s unfortunate situation, I am compelled to dissent because the common law defense of necessity is predicated on a lack of legal alternatives. Washington voters have provided a comprehensive statutory scheme for the use of medical marijuana, enacted by initiative in 1998. Because individuals in this state have a legal way of using
¶24 The common law necessity defense has existed for hundreds of years for defendants who were forced to violate the law to avoid a greater harm. Wayne R. LaFave & Austin W. Scott, Jr., Criminal Law 444 (2d ed. 1986). To assert the necessity defense, a defendant must reasonably believe the unlawful action was necessary to avoid harm. State v. Diana, 24 Wn. App. 908, 914, 604 P.2d 1312 (1979); LaFave & Scott, supra, at 446. In addition, the harm the defendant sought to avoid must outweigh the harm caused by a violation of the law. Diana, 24 Wn. App. at 914; LaFave & Scott, supra, at 446-47. Finally, and most importantly for our analysis of this case, the defense cannot be asserted when “a legal alternative is available to the accused.” Diana, 24 Wn. App. at 913-14; LaFave & Scott, supra, at 448-49.
¶25 A common example of the necessity defense is a prisoner who escapes from a prison on fire. See People v. Whipple, 100 Cal. App. 261, 279 P. 1008 (1929). Such a prisoner could theoretically defend against a charge of prison escape by arguing that there was no legal alternative to avoid severe injury or death. Id. at 263 (noting a prominent 1736 treatise on criminal law that states, “If a prison be fired by accident, and there be a necessity to break prison to save his life, this excuseth the felony.” 1 Matthew Hale, The History of the Pleas of the Crown 611 (1736), available at http://archive.org/details/historiaplaci torOlhale). In contrast, a prisoner who escapes from prison because he claims the conditions amounted to brutal and inhumane treatment cannot assert the defense of necessity when there is no record that he attempted to address prison conditions through lawful means. Whipple, 100 Cal. App. at 262, 265.
¶26 Thus, the necessity defense is specifically predicated on a defendant’s lack of legal alternatives. The United
¶27 When the Court of Appeals created the medical necessity defense for marijuana use in 1979, there was no provision for legal medical use of marijuana to treat the defendant’s multiple sclerosis. Diana, 24 Wn. App. at 915. Accordingly, the Court of Appeals created a three-part medical necessity defense, including a requirement that defendants present evidence that there was no legal alternative to using marijuana illegally to treat their symptoms. Id. at 916. Specifically, defendants had to show that no legal drug was as effective as marijuana in minimizing the effects of their disease. Id. Defendants that made such a showing could assert the medical necessity defense because they had no legal alternative to using marijuana for medical purposes.
¶28 But in 1998, the people of this state passed Initiative Measure 692 (the Washington State Medical Use of Marijuana Act,
¶29 Courts consistently reiterate that defendants asserting the necessity defense must show that they lacked legal alternatives. The Court of Appeals has held that a person eluding a pursuing police vehicle to help a friend in danger cannot assert the necessity defense when there is a legal alternative: seeking that police officer’s assistance. State v. Gallegos, 73 Wn. App. 644, 651, 871 P.2d 621 (1994). In Gallegos, the court reviewed the case of a man who believed his female friend was in danger and began speeding toward her location. Id. at 646. When he was pulled over by a police officer en route, he yelled to the officer that he was okay and that the officer should follow him. Id. He then sped off. Id. When he was later charged with attempting to elude a pursuing police vehicle, the court held that he could not assert the necessity defense because he had a legal alternative — he could have explained the situation to the officer and asked for help for his friend. Id. at 651. This was a reasonable legal alternative that would have averted harm to his friend without violating the law against eluding a pursuing police officer.
¶30 The Alaska Supreme Court has held that stealing highway construction equipment to free a stranded vehicle is unnecessary when there is a legal alternative: calling a tow truck. Nelson v. State, 597 P.2d 977, 980 (Alaska 1979). In Nelson, an Alaska man “borrowed” highway construction equipment to free his truck that was stuck in nearby mud. See id. at 977-78. His unsuccessful attempt to free his truck resulted in significant damage to the construction equipment, and he was charged with destruction of personal property and joyriding. Id. at 978. He attempted to assert the necessity defense, explaining that he believed his truck was in danger of tipping over and being damaged. Id. at 980. The court held that he could not assert the necessity defense because he had several legal alternatives to unlaw
¶31 Similarly, the Ninth Circuit Court of Appeals has held that trespassing on a military base to warn fellow trespassers of impending danger from a military test exercise is unnecessary when there is a legal alternative: informing the military about the presence of the other trespassers. United States v. Mowat, 582 F.2d 1194, 1208 (9th Cir. 1978). In Mowat, a group of individuals were charged with trespassing for entering an island military base to protest military actions. Id. at 1197. One of the individuals who entered the base later than his cohorts asserted a necessity defense, claiming that he entered the military base to warn his friends about an impending bombing of the island. Id. at 1208. The court held that “the assertion of the necessity defense requires that optional courses of action appear unavailable” and that the defendant could not assert the defense because he “made no attempt to secure consent to enter the island, nor did he take the simple step of notifying the officials on the island who could have notified [his friends].” Id.
¶32 These cases are unified by the principle that the necessity defense is unavailable to defendants who fail to avail themselves of reasonable legal alternatives. The necessity defense is not an unlimited license to violate the law to avoid a potential harm. Rather, the defense exists to protect defendants who truly have no legal alternatives.
¶33 Of course the overall common law necessity defense continues to protect defendants who are forced to violate the law to avert a greater harm. But the narrow medical necessity defense developed in Diana specifically for individuals with a medical need to use marijuana no longer makes sense in a state that specifically provides a legal method for the medical use of marijuana. I would hold that a defendant wishing to assert a necessity defense would
¶34 In addition, both Diana and the majority opinion rely heavily on section 3.02 of the Model Penal Code (MPC) (Proposed Official Draft (1962)), despite the fact that the legislature considered and rejected that exact provision. A brief review of the legislature’s consideration of the MPC is instructive. In 1967, the Washington State Senate delegated the responsibility of recommending revisions to the criminal code of 1909 to the Judiciary Committee of Washington’s Legislative Council. Judiciary Comm, of Wash. Legis. Council, Legislative Council’s Judiciary Committee, Revised Washington Criminal Code at ii (Dec. 3, 1970). In 1970, the judiciary committee published a proposed draft of the revised criminal code that adopted MPC section 3.02’s necessity defense, calling it a “justification” defense. Id. at ii, 64. However, when the legislature adopted the criminal code of 1965, it did not include the justification defense. Laws of 1975, 1st Ex. Sess., ch. 260, at 828-30. Since MPC section 3.02 was explicitly proposed by the judiciary committee and then rejected by the full legislature, it seems inappropriate for the courts to subsequently adopt and apply that exact test.
¶35 Furthermore, I find no way to avoid the conclusion that the Medical Use of Marijuana Act abrogated the common law defense. A statute abrogates the common law when “ ‘the provisions of a . . . statute are so inconsistent with and repugnant to the prior common law that both cannot simultaneously be in force.’ ” Potter v. Wash. State Patrol, 165 Wn.2d 67, 77 196 P.3d 691 (2008) (alteration in original) (quoting State ex rel. Madden v. Pub. Util. Dist.
¶36 Moreover, allowing the common law defense to coexist with the statutory defense would frustrate the purpose of the Medical Use of Marijuana Act. When determining whether a statute is exclusive, this court has repeatedly indicated that it must strive to uphold the purpose of the statute. See, e.g., Potter, 165 Wn.2d at 87; see also Wash. Water Power Co. v. Graybar Elec. Co., 112 Wn.2d 847, 855, 774 P.2d 1199, 779 P.2d 697 (1989). In passing the Medical Use of Marijuana Act voters set up a structure to allow medical marijuana, but they specifically limited the defense to individuals using medical marijuana under a doctor’s supervision. If the court were to uphold the broader common law defense without the requirement of a doctor’s supervision, the court would frustrate the purpose of the
¶37 I respectfully dissent.
The Medical Use of Marijuana Act was renamed the Washington State Medical Use of Cannabis Act in 2011. RCW 69.51A.900.
