Ira v. Janecka
Ira v. Janecka
Opinion
{1} During the last thirteen years the Supreme Court of the United States, relying on neuroscientific evidence of adolescent behavior, issued three opinions declaring that certain sentences imposed on juvenile offenders violate the Eighth Amendment prohibition of cruel and unusual punishment.
Roper v. Simmons
,
{2} Nearly twenty years ago, Petitioner, Joel Ira, was sentenced as a juvenile to 91 ½ years in the New Mexico Department of Corrections after he pled no contest to several counts of criminal sexual penetration and intimidation of a witness-crimes which he committed when he was fourteen and fifteen years old. Under the relevant Earned Meritorious Deduction Act (EMDA), NMSA 1978, § 33-2-34(A) (1988, amended 2015), 1 Ira can be eligible for parole when he has served one-half of his sentence-approximately 46 years-if he maintains good behavior while incarcerated. He will be approximately 62 years old when he can first be eligible for parole.
*163 {3} Ira petitioned for a writ of habeas corpus to make the central argument that his sentence is equivalent to a life sentence without parole and therefore constitutes cruel and unusual punishment in violation of the Eighth Amendment to the United States Constitution and Article II, Section 13 of the New Mexico Constitution. He relies on Roper and its progeny for his argument. Whether the rationale of these cases, and in particular Graham , should be applied to a term-of-years sentence for the commission of multiple crimes is the preliminary question we must answer. If Graham applies, we must next consider whether Ira's long consecutive sentence effectively deprives him of a meaningful opportunity to obtain release by demonstrating his maturity and rehabilitation, thereby violating the prohibition of cruel and unusual punishment.
{4} Other courts are split on whether to apply Graham when a juvenile receives a a multiple term-of-years sentence for the commission of multiple crimes. We conclude that Graham applies when a multiple term-of-years sentence will in all likelihood keep a juvenile in prison for the rest of his or her life because the juvenile is deprived of a meaningful opportunity to obtain release by demonstrating his or her maturity and rehabilitation. In this case, Ira can be eligible for a parole hearing when he is 62 years old if he demonstrates good behavior under the EMDA. Therefore, based on the record before us, we conclude that Ira has a meaningful opportunity to obtain release by demonstrating his maturity and rehabilitation before the Parole Board. We find the remaining issues raised in the petition to be without merit and therefore deny the petition.
I. FACTUAL AND PROCEDURAL BACKGROUND
{5} The underlying conduct for which Ira pled no contest is discussed extensively in
State v. Ira
,
{6} The district court had the discretion to invoke an adult sentence or a juvenile disposition. NMSA 1978, § 32A-2-20(A) (1996, amended 2009). The district court invoked an adult sentence because the court found that Ira was "not amenable to treatment or rehabilitation as a child in available facilities," and Ira was "not eligible for commitment to an institution for the developmentally disabled or mentally disordered." Section 32A-2-20(B)(1)-(2). The district court made these findings persuaded by the seriousness of the crimes and the effect on the young victim. The district court also noted that although Ira's lifestyle "was not one to be envied," the experts testified that Ira was "devoid of conscience and devoid of empathy for other human beings." The district court ultimately sentenced Ira to 91 ½ years in the custody of the New Mexico Department of Corrections.
{7} The Court of Appeals affirmed, holding that his sentence was not cruel and unusual punishment.
Ira
,
{8} In his special concurrence, Chief Judge Bosson expressed concern over the length of Ira's sentence. Since the earliest Ira can be eligible for a parole hearing is *164 after serving 45 years of his sentence, Chief Judge Bosson noted, "[f]or one so young, this is effectively a life sentence. One who goes into prison a teenager and comes out a man at the age of retirement has forfeited most of his life." Id. ¶ 45 (Bosson, C.J., specially concurring).
{9} Chief Judge Bosson also observed the irony of the sentence when compared with the underlying offenses for which Ira pled no contest, explaining that
[i]f [Ira] had eventually killed his victim, perhaps to protect himself from prosecution for his other crimes, he could have received a life sentence as an adult, but would have become eligible for parole after a "mere" thirty years. Thus, although [he] commits crimes which, however gruesome, are less than first degree murder, he receives a sentence that is effectively fifty percent longer.
Id. ¶ 46.
{10} Ira filed a writ of habeas corpus in the district court that sentenced him pursuant to Rule 5-802 NMRA. In it he argued that (1) his sentence constitutes cruel and unusual punishment in violation of the Eighth Amendment and Article II, Section 13 of the New Mexico Constitution ; (2) the trial court erred in failing to set aside his plea agreement; and (3) he was denied effective assistance of counsel. The district court denied his petition. We granted certiorari pursuant to Rule 12-501 NMRA.
II. DISCUSSION
A. The Eighth Amendment Forbids a Term-of-Years Sentence That Deprives a Juvenile of a Meaningful Opportunity to Obtain Release
{11} Ira's argument that his 91 ½-year sentence is cruel and unusual punishment in violation of the Eighth Amendment and Section II, Article 13 of the New Mexico Constitution is a question of constitutional law, which we review de novo.
See
State v. DeGraff
,
{12} The Eighth Amendment provides that "[e]xcessive bail shall not be required, nor excessive fines imposed, nor cruel and unusual punishments inflicted." The United States Supreme Court looks beyond a historical interpretation of cruel and unusual punishment and instead looks to "evolving standards of decency that mark the progress of a maturing society."
Trop v. Dulles
,
{13} The Supreme Court has imposed several categorical bans on juvenile sentencing. In
Roper
, the Court held that the Eighth Amendment bars the death penalty for an offender who committed his or her offense before the age of eighteen.
{14} The first issue we address is whether the analysis of juvenile sentencing in
Roper
,
Graham
, and
Miller
should be applied to multiple term-of-years sentences. Some jurisdictions have held that these cases do not reach multiple term-of-years sentences for multiple non-homicide crimes.
See
State v. Kasic
,
{15} Other jurisdictions reject the narrow interpretation espoused by these aforementioned courts, largely concluding that such a narrow interpretation is inconsistent with
Graham
's requirement that a juvenile be given a meaningful opportunity for release based on the juvenile's demonstrated maturity and rehabilitation. In
Henry v. State
,
{16} Other jurisdictions applying
Graham
to term-of-years sentences offer different rationales for doing so.
See
State v. Boston
,
{17} Some jurisdictions have applied
Graham
when the sentence may provide for
*166
release before the juvenile's death but forecloses the opportunity for the juvenile to have a meaningful life outside of prison.
See
State v. Moore
,
A juvenile offender is typically put behind bars before he has had the chance to exercise the rights and responsibilities of adulthood, such as establishing a career, marrying, raising a family, or voting. Even assuming the juvenile offender does live to be released, after a half century of incarceration, he will have irreparably lost the opportunity to engage meaningfully in many of these activities and will be left with seriously diminished prospects for his quality of life for the few years he has left. A juvenile offender's release when he is in his late sixties comes at an age when the law presumes that he no longer has productive employment prospects.
* * *
The United States Supreme Court viewed the concept of "life" in Miller and Graham more broadly than biological survival; it implicitly endorsed the notion that an individual is effectively incarcerated for "life" if he will have no opportunity to truly reenter society or have any meaningful life outside of prison.
Casiano v. Comm'r of Corr.
,
{18} Some courts have held that the Eighth Amendment only requires courts to consider the constitutionality of each individual sentence as opposed to the cumulative impact of consecutive sentences,
see e.g.
Pearson v. Ramos
,
{19} The dissent would also limit the scope of
Graham
on the grounds that there is a significant distinction between life without parole sentences and term-of-years sentences. Diss. Op. ¶ 44. The only difference our cases have recognized is that a life sentence, unlike a term of years, lacks a discernable maximum and minimum term of imprisonment.
State v. Juan
,
{20} We conclude that the analysis contained within Roper and its progeny should be applied to a multiple term-of-years sentence. Taken together, Roper , Graham , and Miller reveal the following three themes regarding the constitutionality of juvenile sentencing.
{21} First, juveniles' developmental immaturity makes them less culpable than adults because juveniles have an "underdeveloped sense of responsibility," and an inability "to appreciate risks and consequences," meaning juveniles' violations are likely to be a product of "transient rashness" rather than "evidence of irretrievabl[e] deprav[ity]."
Miller
,
{22} Second, juveniles have a greater potential to reform than do adult criminals which makes it essential that they have a meaningful opportunity to obtain release based on demonstrated maturity and reform.
Graham
,
{23} Third, no penological theory-retribution, deterrence, incapacitation, and rehabilitation-justifies imposing a sentence of life without parole on a juvenile convicted of a non-homicide crime because juveniles are less culpable and more amenable to reformation.
Graham
,
{24} With respect to retribution, the
Graham
Court explained that "[s]ociety is entitled to impose severe sanctions on a juvenile nonhomicide offender to express its condemnation of the crime and to seek restoration of the moral imbalance caused by the offense." 550 U.S. at 71,
{25} Deterrence was similarly insufficient to justify a life without parole sentence on a juvenile. The
Graham
Court emphasized that "the same characteristics that render juveniles less culpable than adults suggest ... that juveniles will be less susceptible to deterrence."
Id
. at 72,
{26} Incapacitation also does not justify a life-without-parole sentence because a sentencing court would have to decide that a "juvenile offender forever will be a danger to society."
{27} Rehabilitation does not support a life-without-parole sentence because it "forswears altogether the rehabilitative ideal."
{28} Just as the Graham Court found no penological theory that justified the imposition of a life without parole sentence on a juvenile nonhomicide offender, we find no penological theory that supports a term-of-years sentence that in all likelihood will keep the juvenile in prison for the rest of his or her life without a meaningful opportunity to obtain release.
{29} What the
Graham
Court explained in establishing a bright-line rule prohibiting life without parole for a nonhomicide juvenile offender is that although "[a s]tate is not required to guarantee eventual freedom to a juvenile offender convicted of a nonhomicide crime," it must "give defendants like Graham some meaningful opportunity to obtain release based on demonstrated maturity and rehabilitation."
{30} In this case, the district court sentenced Ira to an adult prison, stating:
Ordinarily, the young age of the defendant would tend to influence a judge toward leniency, based upon the inference that the crimes were motivated in part by youthful impulsiveness and immaturity, and that converting a large amount of incarceration to probation will allow the youth to show that the lesson has been learned and he can now benefit rather than attack society. That analysis does not apply here, first because of the inability to convert first degree felony incarceration to probation ... and, second, because Joel Ira is not the typical young defendant. The evidence shows that he is almost certain to be the same threat to society upon his release as he is today because humanity has not developed a way to implant a conscience once the period for its natural growth has passed.
* * *
This Court would like to fashion a sentence that will guarantee, or even offer hope, that Joel Ira can be released after a period of time as a rehabilitated person, able to be a valuable part of, rather than a threat to, his community. There is no such sentence.
This Court would like to fashion a sentence that will assure Joel Ira's victims that he will not be a serious threat to them if released before he reaches an advanced age. There is not such sentence.
This Court must then fall back upon a sentence that will protect society from a man without a conscience until such time as his physical ability to cause harm is less than the likelihood that he would attempt it. To assure that result, in consideration of the crowded conditions of our prisons and the ability of the Department of Corrections *169 to grant credit of up to half of an adult sentence in order to relieve overcrowding, the Court must impose twice what it intends to be the effective term of incarceration.
{31} The district court relied on "the most experienced and qualified experts in the field of juvenile corrections and psychotherapy" at the time. These experts informed the court that Ira "is a child devoid of conscience and devoid of empathy for other human beings...." The court further explained that
[t]he experts say that each human being must develop these tools at a young age, for personalities become fixed before the teenage years and it is very hard, if not impossible to implant a conscience in a sixteen year old where none existed before. These experts looked, in this case, for evidence of remorse or empathy that would provide the slightest glimmer of hope that Joel Ira could defy the odds and become rehabilitated, and they found none.... The experts told this Court that New Mexico simply does not have a program that offers even a slight hope of protecting the public if Joel Ira were released from custody.
{32} The court's sentiment that no hope existed for Ira to be rehabilitated because personalities become fixed before teenage years is of questionable neuroscientific validity since
Roper
and its progeny. There is no evidence in the record to assist this Court in determining whether indeed the experts' opinions were invalid and unreliable. The
Miller
Court assumed that juveniles as a category are immature, impetuous, and generally have a diminished capacity to avoid negative environmental influences and peer pressures.
{33} The
Miller
Court recognized that some youths, despite their status as adolescents, may be different from the norm, and therefore declined to consider whether the Eighth Amendment requires a categorical ban on life without parole for juveniles.
Id
. Stated differently, the Supreme Court recognizes the need for individualized sentencing. Thus, the juvenile's attorney will introduce mitigating evidence, perhaps through a forensic mental health expert, that the juvenile conforms to developmental norms, which should dissuade the district court from imposing a sentence that in all likelihood will condemn the juvenile to prison for the rest of his or her life without a meaningful opportunity to obtain release. The prosecution will introduce evidence that the juvenile is not the norm and therefore the crime was not the product of transient developmental influences, but instead the evidence makes the juvenile that rare juvenile whose crime reflects irreparable corruption.
See
B. Ira's Term-of-Years Sentence is Constitutional Because it Does Not Deprive Him of a Meaningful Opportunity to Obtain Release
{34} Ira does not contest the evidence introduced against him during his sentencing or habeas corpus hearing. Instead he seeks a declaration that his sentence is categorically unconstitutional because it is the functional equivalent of a life sentence without the possibility of parole. Based on the record before us, we cannot agree with this contention.
{35} In this case the district court arguably found that Ira is that rare juvenile who is irreparably corrupt. Regardless, the sentence imposed on Ira does not deprive him of a meaningful opportunity to obtain release based on demonstrated maturity and rehabilitation. Presuming that he demonstrates his good behavior, he will be parole eligible when he is approximately 62 years old. Had Ira been sentenced to 91 ½ years without the opportunity to reduce his sentence with good behavior, our analysis would be different. But, with demonstrated good behavior, Ira will have the opportunity to make his case before a parole board.
{36} The New Mexico Legislature enacted the Parole Board Act "to create a professional parole board." NMSA 1978, § 31-21-23 (1999). This Act provides parole board members with extensive powers and duties in exercising their authority to grant or deny *170 parole. See NMSA 1978, § 31-21-25(B)(1), (2), (3) (2001) (providing that the parole board has the power to "conduct ... investigations, examinations, interviews, hearings, and other proceedings ...;" and to "summon witnesses, books, papers, reports, documents or tangible things and administer oaths as may be necessary for the effectual discharge of the duties of the board"). With respect to determining an inmate's eligibility for parole, NMSA 1978, Section 31-21-10(A)(2)(2009) requires the parole board to consider all pertinent information concerning the inmate, including:
(a) the circumstances of the offense;
(b) mitigating and aggravating circumstances;
(c) whether a deadly weapon was used in the commission of the offense;
(d) whether the inmate is a habitual offender;
(e) the [presentence and prerelease] reports filed under [ NMSA 1978, Section 31-21-9 (1972) ]; and
(f) the reports of such physical and mental examinations as have been made while in an institution[.]
Section 31-21-10(A)(2).
{37} The parole board will be tasked with performing these duties during Ira's hearing to determine whether parole is in the best interest of society and whether Ira is able and willing to fulfill the obligations of a law-abiding citizen. See NMSA 1978, § 31-21-10(A)(3), (4) (2007). If he is granted parole, he will remain under the supervision of the parole board, possibly for the remainder of his life. See § 31-21-10.1(A)(2) (providing that a person convicted of first-degree criminal sexual penetration shall serve a period of parole up to the person's natural life).
{38} Certainly the fact that Ira will serve almost 46 years before he is given an opportunity to obtain release is the outer limit of what is constitutionally acceptable.
See
People v. Contreras
,
{39} Other jurisdictions, in the wake of
Graham,
have amended their parole eligibility time frames for juveniles. Nevada enacted such a statute in 2015 providing a juvenile offender with a parole eligibility hearing after serving fifteen years of incarceration if the juvenile was convicted of an offense that did not result in the death of a victim.
See
Nev. A.B. 267 (codified as N.R.S. 213.12135 ) (2015); Remarks by James Dold, Minutes of Nev. Assemb. Comm. on Jud. 7 (Mar. 27, 2015) ("In response to [
Roper
,
Graham
, and
Miller
] and the emerging juvenile brain and behavioral developmental science, several states across the country have begun to eliminate life without parole sentences for kids and create more age-appropriate and fair sentencing standards that are in line with
*171
A.B. 267."). Washington requires juvenile offenders to serve twenty years in confinement before petitioning for parole eligibility.
See
C. Ira's Remaining Claims Lack Merit
{40} Ira alleges a number of procedural errors at the district court. First, he asserts that his waiver of a preliminary hearing should not have been honored because preliminary hearings for children should not be allowed to be waived. At the time of the proceedings against Ira, Rule 10-222 NMRA governed the circumstances under which an alleged youthful offender was afforded a preliminary hearing. When Ira entered his plea, Rule 10-222 was silent about whether a child could waive a preliminary hearing.
See
Rule 10-222 NMRA (1995);
but see
N.M. Const. art. II, § 14 (recognizing that a person being held on a criminal information for a "capital, felonious, or infamous crime" may waive the right to a preliminary examination). Rule 10-222 was amended while Ira's case was pending to explicitly permit such a waiver, and this right remains available today under Rule 10-213 NMRA.
See
Rule 10-222(B) (1999) ("[A] preliminary examination will be conducted unless the case is presented to a grand jury or the child waives the right to a preliminary hearing or grand jury."); Rule 10-213(B)(1) (2014). Accordingly, we find this argument to be without merit. Second, Ira contends that he did not have a separate amenability hearing. This issue is without merit because Ira did have both an amenability hearing and a separate sentencing hearing. Third, Ira contends that he did not receive a report from the Children, Youth and Families Department (CYFD) prior to the amenability hearing required by NMSA 1978, Section 32A-2-17(A)(3) (1995, amended 2009). This issue is without merit because the children's court attorney who prosecuted the case testified that a report was prepared, although it may not have been introduced into evidence. In addition, a CYFD juvenile probation officer testified during the amenability hearing and strongly urged the children's court judge to impose adult sanctions. Fourth, Ira asserts that once the court decided to impose an adult sanction he was entitled to a predisposition report from the adult probation and parole division of the Department of Corrections as required by Section 32A-2-17(A)(3)(b). The State concedes this point but contends that Ira was not prejudiced because expert witnesses testified that no rehabilitation programs in the adult prison system were available to treat Ira. We agree with the State that Ira has not shown prejudice.
See
State v. Jose S.
,
{41} The fifth issue raised by Ira requires more elaboration. Ira asserts that the district court erred in failing to set aside his plea agreement because neither he, his attorney, the prosecutor nor the judge understood the sentence that could be imposed on Ira and therefore the judge initially imposed an illegal sentence on Ira. Ira argued this issue before the district court and on appeal before the Court of Appeals.
See
Ira
,
III. CONCLUSION
{42} For the foregoing reasons, we affirm the district court's denial of Ira's habeas corpus petition.
{43} IT IS SO ORDERED.
WE CONCUR:
CHARLES W. DANIELS, Justice
BARBARA J. VIGIL, Justice
NAKAMURA, Chief Justice (concurring in part, dissenting in part).
{44} The categorical rule announced in
Graham
precluding states from imposing a sentence of life without parole upon juveniles convicted of a nonhomicide offense does not extend to Joel Ira. Ira perpetrated multiple nonhomicide offenses over a lengthy period of time and was sentenced to multiple term-of-years sentences to be served consecutively.
Ira
,
{45} Joseph Donovan was seventeen years old on the night of September 18, 1992. Joseph Donovan, The Commonwealth of Massachusetts Executive Office of Public Safety, Parole Board Decision (Aug. 7, 2014) at 1-2.
3
As Donovan and two companions walked down the street in Cambridge, Massachusetts, they encountered two men.
Donovan
,
*173
{46} Donovan was one of the first juvenile offenders in Massachusetts considered for parole in the wake of the line of cases that include
Graham
and
Miller
and which recognize that juvenile offenders are constitutionally different from adults for purposes of sentencing.
See
Diatchenko v. Dist. Attorney for Suffolk Dist.
,
{47} When Ira was fourteen to fifteen years old, he repeatedly raped his younger stepsister.
Ira
,
{48} Ira was charged with ten counts of first-degree criminal sexual penetration and various other counts. Id. ¶ 2. He pleaded no contest to all of the charges except one. Id. ¶ 4. At sentencing, the testimony indicated that Ira did not feel remorseful about his conduct, refused to take responsibility for his actions, and believed that "he did not do anything wrong." Id. ¶¶ 8, 10. A mental health expert testified that Ira has "a severe conduct disorder, with tendencies towards violent sexual behavior and domination, that would require intensive, secured, long-term treatment." Id. ¶ 10.
{49} I offer these contrasting cases to highlight the fact that there are meaningful and self-evident distinctions between a juvenile offender like Donovan and a juvenile offender like Ira. Most critically, Donovan did not engage in repeated, violent attacks against others. He committed one violent act, which experts attributed to impulsiveness and immaturity. Ira, on the other hand, perpetrated repeated, horrific crimes over two years which experts attributed to a significant conduct disorder that manifests as a propensity for sexually violent behavior. Our understanding of the rule articulated in Graham should acknowledge that there are significant differences between single act and multiple act juvenile offenders. There is an abundance of legal support for the conclusion that this difference is legally salient.
{50} First, the text of
Graham
itself compels the conclusion that the rule articulated
*174
in
Graham
does not extend to Ira. In
Graham
, the Supreme Court made clear that the categorical rule announced applies only to "juvenile offenders sentenced to
life without parole
solely for a nonhomicide offense."
{51} Justice Alito made clear in his dissenting opinion in
Graham
that "[n]othing in the Court's opinion affects the imposition of a sentence to a term of years without the possibility of parole."
{52} Second, a lengthy, aggregate, consecutive, term-of-years sentence for multiple offenses is not the functional equivalent of life imprisonment for a single crime. An aggregate, consecutive, term-of-years sentence for multiple offenses is just that: it is an aggregate punishment for multiple offenses. Our case law already acknowledges this important distinction.
See
State v. Juan
,
{53} Third, "it is wrong to treat stacked sanctions as a single sanction. To do so produces the ridiculous consequence of enabling a prisoner, simply by recidivating, to generate a colorable Eighth Amendment claim."
Pearson v. Ramos
,
{54} Fourth, "if the sentence for a particular offense is not disproportionately long, it does not become so merely because it is consecutive to another sentence for a separate offense or because the consecutive sentences are lengthy in aggregate."
State v. Berger
,
{55} Fifth, "it is constitutionally permissible to punish a person who commits two, three, four or even more crimes (including murder) more severely than a person who commits a single crime."
Ali
,
{56} Sixth and finally, there are strong penological rationales to justify application of consecutive sentencing upon juveniles who commit multiple nonhomicide offenses.
Contra
Graham
,
{57}
Graham
is the law; juveniles convicted of a nonhomicide offense cannot be sentenced to life imprisonment without parole.
I CONCUR:
PETRA JIMENEZ MAES, Justice
Under the EMDA that applied when Ira was sentenced in 1997, an inmate "confined in the penitentiary of New Mexico ... may be awarded a meritorious deduction of thirty days per month upon recommendation of the classification committee and approval of the warden...." NMSA 1978, § 33-2-34(A) (1988). This statute effectively provides for a fifty percent reduction in an inmate's sentence if the inmate merits that reduction through good behavior while in confinement.
Graham was arrested and plead guilty to armed burglary with assault or battery and attempted armed robbery.
The Commonwealth of Massachusetts Executive Office of Public Safety Parole Board's Decision, Joseph Donovan is available electronically at http://www.mass.gov/eopss/docs/pb/lifer-decisions/2014/donovan-joseph-8-7-14paroled.pdf (last visited February 27, 2018).
Reference
- Full Case Name
- Joel IRA, Petitioner, v. James JANECKA, Warden, Lea County Correctional Facility, Hobbs, New Mexico, Respondent.
- Cited By
- 24 cases
- Status
- Published