Case Title: Rice v. Myers

Citation: 

Docket Number: S44792

State: oregon

Court: Oregon Supreme Court

Date: 1998-02-12T00:00:00Z

Document:
Filed:    February 12, 1998

IN THE SUPREME COURT OF THE STATE OF OREGON

JAMES RICE,

	Petitioner

	v.

HARDY MYERS, Attorney General
of the State of Oregon.

	Respondent.

(SC S44792)

_________________________________________________________________
JAMES RICE,

	Petitioner

	v.

HARDY MYERS, Attorney General
of the State of Oregon.

	Respondent.

(SC S44793)

(Consolidated for Argument and Opinion)
	On petitions to review ballot titles.

	Argued and submitted December 16, 1997.

	John J. Tyner III, Hillsboro, argued the cause and filed the
petitions for petitioner.

	John Bagg, Assistant Attorney General, Salem, argued the
cause for respondent.  With him on the responses were Hardy
Myers, Attorney General, and Michael D. Reynolds, Solicitor
General.

	Before Carson, Chief Justice, and Gillette, Van Hoomissen,
Graber, Durham, and Kulongoski, Justices.*

	VAN HOOMISSEN, J.

	Ballot titles certified as modified.  This decision shall
become effective in accordance with ORAP 11.30(10).

	*Fadeley, J., retired January 31, 1998, and did not
participate in this decision.

		VAN HOOMISSEN, J.

		In this original ballot title proceeding, petitioner
challenges the ballot titles for two proposed initiative
measures, Measures 53 and 54, pertaining to criminal sentencing. 
We consolidated the petitions for argument and opinion. 
Petitioner timely submitted comments about the Attorney General's
proposed ballot titles.  ORS 250.067(1).  The Attorney General
declined to modify the ballot titles as requested by petitioner
and, instead, certified the titles.  ORS 250.067(2).  Petitioner
seeks review.  ORS 250.085(2).  We review the titles for
substantial compliance with the requirements of ORS 250.035(2).(1) 
Applying that standard, we determine that both ballot titles
should be modified.

		Under Measures 53 and 54, first-time "major crimes"
offenders receive minimum 14- and 18-month sentences,
respectively.  The measures increase sentences for repeat "major
crimes" offenders.  Measure 53 imposes proportionally increased
sentences of one to three years for repeat offenders; Measure 54
imposes increased sentences of two to six years.  Measure 53 also
provides for the inclusion of prior juvenile adjudications for
calculating "repeat offender" status.  Measure 54 abolishes the
power of sentencing courts to accord "first-time offender"
treatment under ORS 161.610(5) to offenders who use or threaten
to use a firearm in the commission of a crime. 

		For Measure 53, the Attorney General certified the
following ballot title to the Secretary of State:

"INCREASES SENTENCES FOR PERSONS WITH
PRIOR CONVICTIONS FOR LISTED CRIMES

		"RESULT OF 'YES' VOTE:  'Yes' vote increases
sentences for certain convictions if person has prior
convictions for listed crimes.

		"RESULT OF 'NO' VOTE:  'No' vote rejects
increasing sentences if person has prior convictions
for listed crimes.

		"SUMMARY:  Establishes minimum sentences for
crimes listed as 'major crimes.'  Provides one to three
year proportionally increased sentences for major
crimes, aggravated murder or murder if person has one
to three prior convictions for major crime within past
10 years.  Prior juvenile court adjudications involving
major crimes apply to increase sentence.  Treats prior
conviction for driving under influence of intoxicants
as major crime if current conviction is for criminally
negligent homicide using vehicle.  Prohibits temporary
leave or other reduction in additional prison time
imposed under measure."

		For Measure 54, the Attorney General certified the
following ballot title:

"INCREASES SENTENCES FOR PERSONS WITH
PRIOR CONVICTIONS FOR LISTED CRIMES

		"RESULT OF 'YES' VOTE:  'Yes' vote increases
sentences for certain convictions if person has prior
convictions for listed crimes.

		"RESULT OF 'NO' VOTE:  'No' vote rejects
increasing sentences if person has prior convictions
for listed crimes.

		"SUMMARY:  Establishes minimum sentences for
crimes listed as 'major crimes.'  Provides two to six
year proportionally increased sentences for major
crimes, aggravated murder or murder if person has one
to three prior adult convictions or juvenile
adjudications for major crime within past 10 years. 
Eliminates existing possible first offender treatment
for major crime using firearm.  Treats prior conviction
for driving under influence of intoxicants as major
crime if current conviction is for criminally negligent
homicide using vehicle.  Prohibits temporary leave,
other reduction in additional prison time."

Because petitioner makes the same arguments with regard to both
Measure 53 and 54, we use the term "measure" in this opinion to
refer to both measures, unless otherwise indicated.

I.  CAPTION

		Petitioner contends that the Attorney General's caption
fails to identify the subject matter of the proposed measure, as
required by ORS 250.035(2)(a).  He argues that the caption is
misleading, because it suggests that the proposed initiatives
will create enhanced sentencing for repeat offenders of major
crimes when, in fact, the sentencing guidelines and other
sentencing schemes already provide for sentencing enhancement for
prior criminal history.  He also argues that the caption gives a
false impression that the measure would increase sentences only
for repeat offenders when, in fact, they also would affect the
sentences of first-time offenders. 

		When a ballot title caption purports to make a
representation regarding the present state of the law, the
representation must not be misleading.  By stating that the
measure "increases sentences" for persons with prior convictions
for listed crimes, the Attorney General's proposed caption
purports to describe how existing law will change with regard to
its treatment of persons with prior convictions.  Contrary to
petitioner's assertions, however, the phrase is not inaccurate or
misleading.  Repeat offenders currently may receive enhanced
sentences.  Under the new measure, such persons would receive one
to three (or two to six) years in prison in addition to the
enhanced sentences that they would receive under existing
sentencing guidelines and other sentencing schemes.  The Attorney
General's certified caption accurately reflects that aspect of
the measure.

		In answer to petitioner's second argument, however, we
agree that the Attorney General's certified caption could leave a
reasonable reader with  the misleading impression that the
measure applies only to repeat offenders.  To the contrary,
Measure 53 imposes a minimum 14-month sentence, and Measure 54
imposes a minimum 18-month sentence, on persons who have never
been convicted of a "major crime."  The Attorney General's
caption is under-inclusive.  By describing the impact of the
measure on one class of offenders, while excluding any reference
to another class of offenders, the Attorney General's certified
caption misleads the voters as to the full breadth of the measure
and fails reasonably to identify the subject matter of the
measure.  See, e.g., Witt v. Kulongoski, 319 Or 7, 872 P2d 14
(1994) (illustrating this court's application of the foregoing
principle in modifying an under-inclusive and, therefore,
inadequate ballot title caption).

		Accordingly, we modify the caption as follows:	

CHANGES MINIMUM SENTENCES FOR LISTED CRIMES, 
INCLUDING CERTAIN REPEAT OFFENSES

II.  THE RESULT STATEMENTS

		Our modification of the caption requires a
corresponding modification of the Attorney General's "yes" result
statement.  We turn to the Attorney General's "no" result
statement.  

		Petitioner argues that the Attorney General's "no"
result statement misleadingly suggests that a rejection of the
measure will leave the state without enhanced penalties for
persons with prior convictions.  We agree that the proposed "no"
statement improperly suggests that the state would be left
without enhanced sentencing for repeat offenders if the measure
is not passed. 

		Based on the foregoing, we modify the "yes" and "no"
result statements to read as follows:

	RESULT OF "YES" VOTE:  "Yes" vote changes minimum
sentences for listed crimes, including certain repeat
offenses.

	RESULT OF "NO" VOTE:  "No" vote retains present
sentencing statutes and guidelines for listed crimes,
including repeat offenses. 

III.  SUMMARY

		Consistent with his arguments concerning the caption
and result statements, petitioner contends that the summaries of
the Attorney General's ballot titles wrongly give the impression
that Oregon law currently does not impose enhanced punishment on
repeat offenders.  However, we conclude that the certified
summaries concisely and impartially summarize the measures and
their "major effect[s]," as required by ORS 250.035(2)(d). 

		In conclusion, we hold that the ballot title caption
and result statements certified by the Attorney General are
legally deficient and we modify them.  The summaries are
sufficient.

		We certify the following ballot title for Measure 53:

CHANGES MINIMUM SENTENCES FOR LISTED CRIMES,  
INCLUDING CERTAIN REPEAT OFFENSES

		RESULT OF "YES" VOTE:  "Yes" vote changes minimum
sentences for listed crimes, including certain repeat
offenses.

		RESULT OF "NO" VOTE:  "No" vote retains present
sentencing statutes and guidelines for listed crimes,
including repeat offenses.

		SUMMARY:  Establishes minimum sentences for crimes
listed as "major crimes."  Provides one to three year
proportionally increased sentences for major crimes,
aggravated murder or murder if person has one to three
prior convictions for major crime within past 10 years. 
Prior juvenile court adjudications involving major
crimes apply to increase sentence.  Treats prior
conviction for driving under influence of intoxicants
as major crime if current conviction is for criminally
negligent homicide using vehicle.  Prohibits temporary
leave or other reduction in additional prison time
imposed under measure.

		We certify the following ballot title for Measure 54:

	CHANGES MINIMUM SENTENCES FOR LISTED CRIMES, 
INCLUDING CERTAIN REPEAT OFFENSES

		RESULT OF "YES" VOTE:  "Yes" vote changes minimum
sentences for listed crimes, including certain repeat
offenses.

		RESULT OF "NO" VOTE:  "No" vote retains present
sentencing statutes and guidelines for listed crimes,
including repeat offenses.

		SUMMARY:  Establishes minimum sentences for crimes
listed as "major crimes."  Provides two to six year
proportionally increased sentences for major crimes,
aggravated murder or murder if person has one to three
prior adult convictions or juvenile adjudications for
major crime within past 10 years.  Eliminates existing
possible first offender treatment for major crime using
firearm.  Treats prior conviction for driving under the
influence of intoxicants as major crime if current
conviction is for criminally negligent homicide using
vehicle.  Prohibits temporary leave, other reduction in
additional prison time.

		Ballot titles certified as modified.  This decision
shall become effective in accordance with ORAP 11.30(10).

1. 	ORS 250.035(2) provides in part:

		"The ballot title of any state measure to be
initiated or referred shall consist of:

		"(a) A caption of not more than 10 words that
reasonably identifies the subject matter of the state
measure.  * * *;

		"(b) A simple and understandable statement of not
more than 15 words that describes the result if the
state measure is approved.  The statement required by
this paragraph shall include either the phrase, 'I
vote' or 'vote yes,' or a substantially similar phrase,
which may be placed at any point within the statement;

		"(c) A simple and understandable statement of not
more than 15 words that describes the result if the
state measure is rejected.  The statement required by
this paragraph shall include either the phrase, 'I
vote' or 'vote no,' or a substantially similar phrase,
which may be placed at any point within the statement;
and

		"(d) A concise and impartial statement of not more
than 85 words summarizing the measure and its major
effect."