Case Title: Crawford v. State

Citation: 

Docket Number: 426, 2003

State: delaware

Court: Delaware Supreme Court

Date: 2004-09-24T00:00:00Z

Document:
IN THE SUPREME COURT OF THE STATE OF DELAWARE 
 
GARY A. CRAWFORD, 
 
§ 
 
 
§ 
No. 426, 2003      
 
Plaintiff Below, 
§ 
 
Appellant, 
§ 
Court Below:  Superior Court  
 
 
§ 
of the State of Delaware in and  
              v. 
 
§ 
for Kent County 
 
 
§ 
STATE OF DELAWARE, 
§ 
C.A. No. 02M-08-001 
 
 
§ 
 
 
Defendant Below, 
§ 
 
 
Appellee. 
§ 
 
 
 
Submitted: August 25, 2004 
 
 
Decided: 
September 24, 2004 
 
Before HOLLAND, BERGER and JACOBS, Justices. 
 
 
Upon Appeal from Superior Court.  REVERSED and REMANDED. 
 
 
Gary A. Crawford, Smyrna, Delaware; Pro Se. 
 
 
Bernard J. O'Donnell, Esquire, Wilmington, Delaware; Amicus Curiae. 
 
 
John Williams, Esquire, Department of Justice, Dover Delaware; for 
Appellee, State of Delaware. 
 
 
 
 
 
 
 
 
 
 
JACOBS, Justice: 
 
Gary A. Crawford appeals from an order of the Superior Court denying his 
petition for return of property that was seized by police in an investigation that led 
to his June 1, 2001 plea of guilty to one count of third degree rape and two counts 
of sexual exploitation of a child.  Crawford was sentenced to 30 years 
imprisonment (suspended after 9 years for decreasing levels of supervision) on 
September 26, 2001.  After the Superior Court denied his motion for a reduction of 
sentence, that sentence was affirmed by this Court on March 25, 2003. 
 
On August 2, 2002, Crawford filed a motion in the Superior Court seeking 
return of his property that had been seized in the investigation.  The motion was 
referred to a Superior Court Commissioner for findings of fact and 
recommendations.  The State filed a response to Crawford's motion on December 
9, 2002, in which the State opposed the return of the property.  The Commissioner 
recommended that the property be forfeited, and the Superior Court adopted the 
Commissioner’s recommendation.   
 
Crawford then appealed the order of the Superior Court to this Court, after 
which the State filed a motion to affirm, which was denied.  Because Crawford 
appeared pro se, this Court appointed an amicus curiae to address the legal issues 
presented.1   
                                                 
1 The Court takes this opportunity to express its appreciation for the commendable efforts of the 
court-appointed amicus on this appeal. 
 
 
2 
 
Because it filed its motion for forfeiture less than 20 days before the date 
that had been scheduled for Crawford's trial, the State concedes that it waived its 
right to seek forfeiture under Criminal Rule 40.2  The State contends, nonetheless, 
that under 11 Del. C. § 2311(a)(2),3 the trial court retained independent power to 
dispose of property “validly seized” whether or not the State satisfies the 
procedural requirements of Rule 40.  Additionally, the State argues, its December 
9, 2002 response to Crawford’s motion for return of property operated as a timely 
petition for forfeiture under 10 Del. C. § 8115, because that response was filed 
before Crawford’s sentence was affirmed on March 25, 2003.   
 
The amicus responds that the State’s December 9, 2002 response cannot be 
considered a timely petition for forfeiture, because it was filed after the expiration 
                                                 
2 Superior Court Criminal Rule 40 states:  
 
 (a) Motion for forfeiture.  When the state seeks to forfeit property of a person 
charged with a criminal offense pursuant to a statute authorizing a criminal 
forfeiture...it shall file a motion for forfeiture not later than 20 days before trial of 
the criminal offense.  The petition shall allege the factual and legal basis for 
forfeiture and the extent of the interest or property subject to forfeiture. 
 
3 11 Del. C. § 2311.  Disposition of property validly seized. 
 
(a) The following disposition shall be made of any papers, articles or things 
validly seized:  
 
*** 
      (2) If the papers, articles or things were allegedly used in the commission of a 
crime, … if such person is duly convicted of the alleged crime, the papers, articles 
and things shall be disposed of as the court directs. 
 
 
3 
of the one-year period of limitations set forth in 10 Del. C. § 8115.  That statute 
requires that an action for forfeiture upon a penal statute must be filed within one 
year "from the accruing of the cause of action."4  The amicus urges that the State's 
claim is time-barred under Section 8115, because Crawford's cause of action 
"accrued" on the date of his guilty plea, June 1, 2001—more than one year before 
the State responded to Crawford’s petition for return of property.  The amicus also 
contends that even if the State's response was timely under Section 8115, the 20-
day-before-trial filing requirement of Criminal Rule 40 "trumps" 10 Del. C. § 
8115, because under 11 Del. C. § 5122,5 any inconsistency between the Delaware 
Code and the Rules of Criminal Procedure must be resolved in favor of the Court 
Rule.   
                                                 
4 10 Del. C. § 8115.  Forfeiture under penal statute.  
 
No civil action for a forfeiture upon a penal statute, whether at the suit of the 
party aggrieved, or of a common informer, or of the State, or otherwise, shall be 
brought after the expiration of one year from the accruing of the cause of such 
action. 
 
5 11 Del. C. § 5122.  Conflict between rules and statutes.  
 
Any inconsistency or conflict between any rule of court promulgated under the 
authority of § 5121 of this title, or prior law, and any of the provisions of this 
Code or other statute of this State, dealing with practice and procedure in criminal 
actions in the Superior Court, shall be resolved in favor of such rule of court.   
 
 
 
 
4 
Four issues are presented on this appeal:  First, is Criminal Rule 40 
jurisdictional, such that if the State files a petition for forfeiture less than 20 days 
before the scheduled criminal trial date, the State is barred from seeking forfeiture 
based on a criminal statute?  Second, when does the cause of action "accrue" for 
purposes of the one-year limitations period mandated by 10 Del. C. § 8115, which 
applies to actions for forfeiture based on a civil penal statute?  Third, does Section 
8115's one-year statute of limitations for the State to file a civil action for forfeiture 
also apply to a defendant's petition for return of property?  Fourth, and finally, does 
11 Del. C. § 2311(a)(2) independently empower the Superior Court to dispose of 
property seized from individuals convicted of crimes, and if so, is that power 
subject to the defendant's Due Process right to a jury trial? 
 
Forfeiture proceedings that are civil in nature are governed by the one-year 
statute of limitations found at 10 Del. C. § 8115.  Also applicable to forfeiture 
proceedings is Criminal Rule 40(a), which requires that in a criminal proceeding, 
the State "shall" file a motion for forfeiture no later than 20 days before the trial of 
the criminal offense.  Crawford, and the amicus claim that because the State failed 
to file a timely motion for forfeiture in his criminal case, the State forever waived 
its right to forfeiture, because 11 Del. C. § 5122 provides that any inconsistency 
 
 
5 
between the Delaware Code and the Rules of Criminal Procedure must be resolved 
in favor of the Rules.   
The difficulty with that argument is that 11 Del. C. § 5121, the statute that 
empowers the Superior Court to adopt procedural rules, also provides that “[s]uch 
rules shall not abridge, enlarge or modify the substantive rights of any person.”6  
"Any person" would presumably include jural persons such as the State.  Arguably, 
therefore, the 20 days-before-trial filing requirement of Rule 40 cannot be 
jurisdictional.  If it were, then Rule 40 (a procedural rule) would severely abridge 
the State's statutory (substantive) right under Section 8115 to file a forfeiture 
proceeding within one year of the accruing of the cause of action.  Moreover (as 
the State points out), by pleading guilty long before the scheduled criminal trial 
                                                 
6 11 Del. C. § 5121 provides: 
 
(a) The Superior Court may, from time to time, adopt and promulgate general 
rules which prescribe and regulate the form and manner of process, pleading, 
practice and procedure governing criminal proceedings in the Superior Court from 
their inception to their termination, including such proceedings before inferior 
courts and justices of the peace as are preliminary to indictment or information 
filed in the Superior Court. 
 
(b) Such rules shall not abridge, enlarge or modify the substantive rights of 
any person, and shall preserve the right of trial by jury as at common law and as 
declared by the statutes and Constitution of this State.  (emphasis added). 
 
   
 
 
6 
date, a defendant could preclude the State from filing a forfeiture motion before its 
right to do so under Rule 40 has expired.  
 
How the inconsistency between Rule 40 and Section 8115 should be 
resolved, is an issue that need not be decided in this case, however.  In all events, 
and at the latest, under Section 8115 the State was required to seek forfeiture 
within one year from the accrual of its cause of action.  We have previously 
determined that a cause of action under Section 8115 "accrue[s]" on the date of the 
defendant's sentencing.  Because the State did not file an action for forfeiture 
within one year from Crawford's sentencing, the State waived its entitlement to 
seek forfeiture in all events. 
A cause of action for forfeiture under Section 8115 accrues on “the date the 
criminal case ends,” which, this Court has held, is the date of sentencing.7  That is 
because the date of sentencing is the “benchmark” of a final judgment in a criminal 
                                                 
7 Jackson v. Division of State Police, C.A. No. 92C-04-172, 1992 Del. LEXIS 402, at *1-2 (Del. 
1992) (“It is well settled by Delaware law that the statute of limitations in a civil forfeiture action 
is one year from the time the cause of action accrues, which is the date the criminal case ends 
(citation omitted).  Appellant was sentenced on April 12, 1991 for drug related crimes. Appellant 
did not file the action until April 22, 1992.  Thus, it is clear from these facts that under settled 
Delaware law that the statute of limitations had indeed expired and that the Superior Court's 
dismissal was proper.”) 
 
 
 
7 
case,8 and the defendant’s time to file an appeal begins to run from that date.9  
Therefore, a cause of action for forfeiture based on a penal statute (which involves  
a criminal conviction and sentence) accrues upon the entry of final judgment in the 
underlying criminal case.10 
The parties suggest other dates, such as the date the conviction or the 
sentence is affirmed, or the date of the jury's verdict of conviction (or, 
alternatively, the date of the guilty plea) as the time from which a cause of action 
"accrues."  Although these positions appear to have found some support in 
Superior Court case law,11 this Court has held that for purposes of determining 
                                                 
8 Weaver v. State, 779 A.2d 254, 258 (Del. 2001). 
 
9 See 10 Del. C. § 147 (30-day time limit to appeal criminal conviction to Delaware Supreme 
Court); Supr. Ct. R. 6(a)(ii) (appeal must be filed within "30 days after a sentence is imposed in a 
direct appeal of a criminal conviction"); Super. Ct. Crim. R. 39(a) (15-day time limit "from the 
date of sentence" on criminal appeals to Superior Court). 
 
10 Generally, statutes of limitation “commence to run against a cause of action from the time it 
accrues, or from the time when the holder thereof has the right to apply to the court for relief, 
and to commence proceedings to enforce his rights. The time when the cause of action has 
accrued within the Statute of Limitations means the time when plaintiff first became entitled to 
sue." Helmerich & Payne v. Colorado Interstate Gas Co., 187 A.2d 67 (Del. 1962) (Terry, J., 
concurring), citing Wood on Limitations, 4th Ed., 684 Sec. 122a. 
 
11 See, e.g., State v. Sudler, Cr.A. No. IN89-04-0417, 1993 Del. Super. LEXIS 94, at *4 (Del. 
Super. Ct. 1994) (Cause of action accrues upon affirmance of a conviction); Jenkins v. O’Brien, 
C.A. No. 83C-MY-21, 1983 Del. Super. LEXIS 752 (Del. Super. Ct. 1983) (dismissing legal 
malpractice action against defense attorney because the cause of action accrues on date of 
conviction).   
 
 
8 
when a cause of action "accrues" under Section 8115, the controlling date is the 
date of sentencing.   
The third issue is whether the statute of limitations applies both to the State’s 
petition for a forfeiture of property and to the defendant’s petition for return of 
property.  We hold that it does.  Section 8115 refers to “... the suit of the party 
aggrieved, … or of the State, or otherwise”12 to one year after the "accrual" of the 
cause of action.  Thus, the one-year time bar applies to both the State and the party 
whose property has been seized.  This Court has held that a defendant’s petition for 
return of property, if filed more than one year from the defendant's sentencing, is 
time-barred and must be dismissed.13  Crawford's petition for return of property is 
not time-barred, however, because Crawford was sentenced on September 26, 
2001, and he filed his petition for the return of property on August 2, 2002.  His 
petition, therefore, fell within Section 8115's one-year period of limitations.   
The State next asserts that its answer to Crawford's petition should be 
deemed a timely motion for forfeiture of property.  Assuming without deciding that 
filing an answer that contains an objection to a petition for return of property was a 
                                                 
12 10 Del. C. § 8115. 
13 Jackson, 1992 Del. LEXIS 402 *2 (Del. 1992).  Under federal law, the statute of limitations 
applies only to the Government's petition for forfeiture.  If no forfeiture action is properly filed 
within the period of limitations, the defendant may petition thereafter and his property will be 
returned.  United States v. Giovanelli, 998 F.2d 116 (2d Cir. 1993). 
 
 
9 
procedurally proper way for the State affirmatively to seek a forfeiture, the State's 
answer was not filed until December 9, 2002—more than one year after Crawford 
had been sentenced.  Thus, under any scenario the State's forfeiture claim is time-
barred.  
Lastly, the State claims that even if its application for forfeiture was not 
timely, the Superior Court is still empowered to order a forfeiture of the 
defendant’s property under its authority independently conferred by 11 Del. C. § 
2311(a)(2).  That statute provides that property of one “duly convicted of the 
alleged crime…shall be disposed of as the court directs.”  Crawford and the amicus 
respond that even under that construction of Section 2311, Crawford is entitled to a 
jury trial on his petition for return of property.  Crawford is correct:  in State v. 
Rossitto, this Court determined that a defendant is entitled to the due process 
safeguards of a jury trial in a proceeding to determine forfeiture under Section 
2311(a)(2).14   
Although Crawford would be entitled to a jury trial on his petition for return 
of property, that is of no moment in this case, because the State’s application for 
forfeiture was untimely under Section 8115.  Therefore, no trial is needed, since 
                                                 
14 331 A.2d 385, 388 (Del. 1974), citing State v. Fossett, 134 A.2d 272 (Del. Super. Ct. 1957). 
 
 
 
10 
Crawford’s petition for return of property must be treated as unopposed and the 
items of property at issue must be ordered returned to him.   
 
For the foregoing reasons, the judgment of the Superior Court is 
REVERSED, and the case is REMANDED for proceedings consistent with this 
Opinion.