Commonwealth v. Graham
Commonwealth v. Graham
Opinion of the Court
On November 20, 1981, the defendant, Darrell B. Graham, was indicted by a Suffolk County grand jury for violation of the statute prohibiting anyone from deriving support and maintenance from the earnings and the proceeds of a prostitute. G. L. c. 272, § 7. The defendant filed a motion to dismiss the indictment on January 28, 1982, alleging in part that, because he had already been tried by the Municipal Court of the City of Boston for the same offense, the prohibition against double jeopardy bars any further prosecution in the Superior Court. The parties filed a joint motion for a report of questions of law to the Appeals Court. The motion was granted.
The facts agreed upon by the parties were adopted by the Superior Court judge. On July 22, 1981, the defendant, having waived his right to an initial trial by jury, was brought to trial before a judge of the Municipal Court. The defendant pleaded not guilty. With all parties proceeding with the understanding that a trial, not a probable cause hearing, was being held, trial on the merits was held. At the conclusion of the one-day trial, the judge found the defendant guilty as charged and sentenced him to a term of two years in a house of correction. The defendant claimed a de nova appeal to the jury of six session of the Municipal Court.
Two months later the Commonwealth filed a motion to vacate the finding and disposition of the Municipal Court alleging the court’s lack of jurisdiction over the offense. The Commonwealth argued that the Municipal Court did not have jurisdiction of violations of G. L. c. 272, § 7, because of an amendment to the statute, St. 1980, c. 409, which was and still is in effect. Over the defendant’s objection, the judge granted the motion of the Commonwealth, revoked the sentence, vacated the guilty finding, entered a finding of probable cause, and bound the defendant over for the grand jury. The defendant was indicted for the same offense on November 20, 1981. After his arraignment in the Superior Court, the defendant filed his motion to dismiss the indictment.
We turn to the reported questions, not all of which we need answer. The first question we must address is whether
1. Jurisdiction of the District Court. The District Courts, including the Municipal Court, “have original jurisdiction, concurrent with the superior court, of ... all felonies punishable by imprisonment in the state prison for not more than five years.” G. L. c. 218, § 26, as appearing in St. 1981, c. 470. A felony is statutorily defined as “[a] crime punishable by . . . imprisonment in the state prison.” G. L. c. 274, § l.
The Commonwealth, however, argues that the Municipal Court did not have jurisdiction over the offense because of the combined effect of St. 1980, c. 409, amending G. L. c. 272, § 7, and G. L. c. 218, § 27. General Laws c. 218,
While it is true that criminal jurisdiction must include the power to impose sentences, Hopkins v. Commonwealth, 3 Met. 460, 462 (1842), we disagree with the statutory analysis offered by the Commonwealth.
Our analysis of the jurisdiction granted by the Legislature to the District Courts begins with the general rule that “a statute must be interpreted according to the intent of the Legislature . . . considered in connection with the cause of its enactment, the mischief or imperfection to be remedied and the main object to be accomplished, to the end that the purpose of its framers may be effectuated.” Board of Educ. v. Assessor of Worcester, 368 Mass. 511, 513 (1975), quoting Industrial Fin. Corp. v. State Tax Comm’n, 367 Mass. 360, 364 (1975). We have held that “where two or more statutes relate to the same subject matter, they should be construed
The plain language of the statutes indicates that G. L. c. 218, § 27, does not create or limit jurisdiction given by § 26. Section 26 is the statute creating and granting jurisdiction. The reference in G. L. c. 218, § 27, to “all crimes of which [District Courts] have jurisdiction” implies that G. L. c. 218, § 27, neither creates nor limits jurisdiction, but merely precludes a District Court from imposing a State prison sentence.
Statute 1973, c. 585 (as then amending G. L. c. 218, § 26), is entitled, “An Act increasing the criminal jurisdiction of the district courts,” while St. 1924, c. 149 (G. L. c. 218, § 27), is entitled, “An Act increasing the powers of justices of district courts in the matter of sentences.” While the title to an act cannot control the provisions of the statute, the title may be used for the purpose of ascertaining its proper limitations. See Breault v. Ford Motor Co., 364 Mass. 352, 353-354 n.2 (1973); United Shoe Mach. Co. v. Duplessis Shoe Mach. Co., 155 F. 842, 847 (1st Cir. 1907). By dealing with the power of the District Courts to sentence in a statute apart from the statute generally providing subject matter jurisdiction, the Legislature expressed its intent that G. L. c. 218, § 27, was not to determine jurisdiction, but rather that G. L. c. 218, § 26, determined jurisdiction over substantive offenses.
The fact that a statute does not specifically provide an alternative punishment to be imposed by a District Court is not fatal to the court’s jurisdiction. We note that G. L. c. 218, § 26, refers to offenses under G. L. c. 266, § 17, as being within the jurisdiction of the District Courts. General Laws c. 266, § 17, provides that the breaking or entering
Legislative history also indicates that the Legislature did not intend G. L. c. 218, § 27, to have the effect of barring District Court jurisdiction over felonies for which the Legislature has not expressly prescribed an alternative punishment to State prison. As part of St. 1911, c. 176, § 1, the current §§26 and 27 were enacted as one section. The older language clearly indicates that the Legislature was aware of the ambiguity between the two provisions and that the length of punishment, not the place of punishment, determined jurisdiction.
Based on the plain words of the statutes, the titles of the acts relating to the statutes, the example of the special provisions of G. L. c. 218, § 26, and the legislative history, we conclude that the amendment of G. L. c. 272, § 7, by St. 1980, c. 409, does not reflect a legislative intent to transfer the jurisdiction of this crime to the Superior Court exclusively. We hold, therefore, that a District Court has original and concurrent jurisdiction over violations of G. L. c. 272, § 7, as amended. Accordingly, we answer the first reported question in the affirmative. We turn next to the
2. Penalty the District Courts may impose. Ordinarily, we would not address the second question reported to us because the case is capable of disposition without further discussion by us on this issue.
By definition, unless the context otherwise requires, only the Massachusetts Correctional Institution at Walpole (M.C.I. Walpole) is a State prison. G. L. c. 125, § 1 (o). Thus, G. L. c. 218, § 27, bars imposition by the District Courts of sentences to M.C.I. Walpole. As applied to G. L. c. 272, § 7, however, the statute taken as a whole demonstrates that the Legislature could not have intended those convicted of deriving support from a prostitute could only be sent to M.C.I. Walpole. General Laws c. 272, § 7, provides that a sentence of imprisonment can be reduced to two years. The minimum sentence to M.C.I. Walpole is two and one-half years. G. L. c. 279, § 24. Such an internal
General Laws c. 279, § 31, authorizes a District Court to sentence certain offenders to a “correctional institution.”
3. Status of the cause of action. When a full trial on the merits by a court having competent jurisdiction had begun against Graham, jeopardy attached. See Commonwealth v. Clemmons, 370 Mass. 288, 291-292 (1976). There is no disagreement between the parties that a trial on the merits was conducted by the Municipal Court.
The defendant contends further that the guilty finding and sentence by the Municipal Court cannot be reimposed because, as a result of the revocation and vacation of judgment by the Municipal Court, the final finding by the judge of probable cause is controlling and cannot be acted upon without violating the double jeopardy prohibition. The defendant, however, overlooks the fact that the action of the judge who had presided over the jury-waived session was a nullity.
The report of questions is remanded to the Superior Court where the defendant’s motion to dismiss the indictment is to be allowed. The Commonwealth may move in the Municipal Court of the City of Roston to revoke the order revoking the conviction. The defendant’s appeal to a jury of six session is reinstated.
So ordered.
The questions reported are:
“1. Whether the District Court in light of MGL c. 218 § 26 . . . has original jurisdiction concurrent with Superior Court over a violation of M.G.L. c. 272 § 7 as most recently amended by Chapter 409 of the Acts of 1980? . . .
“2. If the District Court is found to have jurisdiction under M.G.L. c. 218 § 26, and a District Court Judge takes jurisdiction and after trial finds a Defendant guilty of a violation of M.G.L. c. 272 § 7; what penalty may the District Court impose in light of M.G.L. c. 218 § 27? . . .
“3. If the District Court is found not to have jurisdiction, whether double jeopardy has attached due to procedures followed in the District Court?
“4. If the District Court is found to have jurisdiction over a violation of M.G.L. c. 272 § 7, and to have properly exercised that jurisdiction thereby trying the Defendant on the merits, such trial resulting in a finding of guilty and the imposition of a sentence and a de nova appeal, and then before the prosecution of the de nova appeal, due to ambiguities in the statute, the Defendant is bound over to Superior Court on the same complaint and indicted with that indictment subsequently being dismissed on District Court double jeopardy grounds; what then happens to the original cause of action?
“5. Is dismissal of this indictment required if the District Court is found to have violated the defendant’s rights under Corey v. Commonwealth, 364 Mass. 137 (1973), and did such violation of Corey rule result in a violation of the defendant’s due process rights under the Fourteenth Amendment to the United States Constitution and under Articles X, XI and XII of the Massachusetts Declaration of Rights?
“6. Whether the violation of the rule established by Corey, supra violated the defendant’s right to effective assistance of counsel guaranteed
“7. Is Massachusetts G.L. c. 272, § 7, unconstitutionally void for vagueness, both on its face and as applied?
“8. Is Massachusetts G.L. ch. 272, § 7, unconstitutional, both on its face and as applied to this defendant, because it violates his rights under the First and Fourteenth Amendments to the United States Constitution to freely associate with others.”
The motion to dismiss is still pending and will be determined by our answers to the reported questions.
See 8 Op. Att’y Gen. 342-344 (1927) (fact that the District Court cannot impose State prison sentence does not change nature of crime to misdemeanor if it exercises jurisdiction).
The earlier version of G. L. c. 272, § 7, as appearing in St. 1977, c. 589, provided that a person who violated the statute “shall be punished by imprisonment in the state prison for not more than three years or in the house of correction for not more than one year or a fine of not more than one thousand dollárs, or both.”
See Police Comm’r of Boston v. Municipal Court of the Dorchester Dist., 374 Mass. 640, 662-663 (1978) (jurisdiction of lower courts limited to that granted by Legislature); Commonwealth v. Leach, 246 Mass. 464, 470-471 (1923) (Legislature can fix, limit, change, and transfer jurisdiction of aU existing courts except Supreme Judicial Court).
Statute 1918, c. 257, § 420, amended St. 1911, c. 176, § 1, by inserting clarifying language.
As we point out in part 3 infra, our conclusion that the District Court had jurisdiction to try the complaint, and the fact that the defendant was tried there, requires the motion to dismiss the indictment be granted on double jeopardy grounds. Commonwealth v. Maloney, 385 Mass. 87, 90 (1982). Contrast Commonwealth v. Lovett, 374 Mass. 394, 396-398 (1978). Additionally, we need not answer questions 3, 5, 6, 7, and 8. There is also some question whether a judge of the Superior Court may report the second question as to District Court procedures under Mass. R. Crim. P. 34, 378 Mass. 905 (1979), but, in the unusual circumstances of this case, we answer question 2 in the interests of judicial economy.
In a footnote in his brief, the defendant offers G. L. c. 279, § 5, as alternative authority to impose a sentence to a house of correction or any other State correctional facility. If a statute provides no punishment for a crime, the District Court may impose a sentence conforming to the common usage and practice in the Commonwealth. G. L. c. 279, § 5. Since G. L. c. 272, § 7, is a felony for which a penalty is prescribed, G. L. c. 279, § 5, is inapposite.
General Laws c. 279, § 31, as appearing in St. 1955, c. 770, § 99, provides: “A male not previously sentenced for felony more than three times, convicted of a crime punishable by imprisonment in any correctional institution of the commonwealth or by imprisonment in a jail or house of correction may be sentenced for an indefinite term. District courts shall have the same jurisdiction to sentence such person to a correctional institution of the commonwealth for an indefinite term as they have to sentence him to such jail or house of correction.”
The statute under examination by the court in Commonwealth v. Hayes, 372 Mass. 505 (1977), was the gun control law, G. L. c. 269, § 10 (d), as appearing in St. 1974, c. 649, § 2, providing for punishment of a
Because there is no ambiguity about whether a trial on the merits was conducted by the Municipal Court, we do not have to consider whether the Municipal Court had violated the rule of Corey v. Commonwealth, 364 Mass. 137 (1973). See Commonwealth v. Maloney, 385 Mass. 87, 89-90 (1982).
We need not address here the issue of the authority of a judge to revise and revoke a sentence within sixty days “if it appears that justice may
We reached no constitutional questions contained in the report as they are premature. We also imply no ruling on the constitutionality of the mandatory sentencing scheme set forth in St. 1980, c. 409, as that issue was not reported, nor has it been briefed by the parties. See Commonwealth v. Gagnon, 387 Mass. 567, 573-574 (1982); Commonwealth v. Marrone, 387 Mass. 702, 704 & n.4 (1982).
Reference
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- Commonwealth v. Darrell B. Graham
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