Title: State Ex Rel. Koppy v. Graff

State: north-dakota

Issuer: North Dakota Supreme Court

Document:

484 N.W.2d 855 (1992) STATE of North Dakota ex rel. Allen KOPPY, in his capacity as Morton County States Attorney, Petitioner, v. Benny A. GRAFF, in his capacity as Judge of the District Court for Morton County, South Central Judicial District, Respondent. Cr. No. 920060. Supreme Court of North Dakota. May 6, 1992. *856 Brian David Grosinger (argued), Asst. State's Atty., Mandan, for petitioner. Ralph A. Vinje (argued), Bismarck, for Debra Meyer, defendant. JOHNSON, Justice. The State of North Dakota, through the Morton County State's Attorney, requested a supervisory writ from this Court to order the District Court for Morton County (District Court) to dismiss without prejudice the charge against Debra Meyer. The District Court refused to allow the State's Attorney to dismiss and ordered trial in the matter. We grant the writ, but allow the defense, at its discretion, to request an evidentiary hearing to determine allegations of bad faith or misconduct on the part of the prosecution or law enforcement authorities. The underlying action involves an accomplice to murder charge against Debra Meyer. She is alleged to be an accomplice in the December 15, 1989, murder of Delwyn Meyer, her husband. On March 5, 1992, a hearing was held on the State's motion to dismiss the pending action, based upon recent developments in the case. The State's Attorney urged that one of the State's key witnesses had been found to be unreliable and that an alibi witness had recently been discovered for the alleged murderer. The State could no longer proceed in the case under the state of the evidence, and requested that the accomplice to murder charge be dismissed under Rule 48(a). The defense resisted this motion, arguing that this evidence was not newly discovered, and that Morton County officials had harassed Meyer for approximately the last two and a half years using various tactics. The defense attorney requested that the case proceed to trial. The Honorable Benny A. Graff denied the State's motion. The State's Attorney then made application to this Court for a supervisory writ[1] to order the District Court to dismiss this charge. On March 6, 1992, this Court issued a stay of criminal proceedings, and on March 18, 1992, requested briefing and oral argument on the issues of whether an evidentiary hearing is required "in order to find either a lack of prosecutorial good faith or the evidence of law enforcement misconduct." The State argues that the District Court clearly abused its discretion by denying the motion to dismiss. The State properly supplied written information which supported the State's motion and informed the District *857 Court why proceeding with this action would be futile. The State argues that, by denying this motion and forcing the trial, the State will be forever barred from bringing Debra Meyer to justice due to double jeopardy restrictions. Therefore, this Court should order the dismissal of the charge without prejudice. This Court's authority to issue, hear, and determine remedial or original writs is found in N.D. Const. art. VI, § 2. The exercise of supervisory control over lower courts is used sparingly and only in emergency situations when there are no available alternatives. Spence v. North Dakota Dist. Court, 292 N.W.2d 53, 58 (N.D.1980). Generally, this Court denies such applications, unless the interests of the State are affected. Id. at 57. See Odden v. O'Keefe, 450 N.W.2d 707, 708 (N.D.1990). This case involves an interpretation of N.D.R.Crim.P. 48(a) which states: This rule has not been interpreted in North Dakota; therefore, this question is one of first impression for this Court. Professor Charles A. Wright discussed the purpose of Rule 48 in his treatise. 3A Charles A. Wright, Federal Practice and Procedure: Criminal 2d § 812 (1982) (citations omitted). The North Dakota rule clearly states that the "court's approval" is required. Federal Rule 48(a) provides: Although the phrasing is different, both the North Dakota and the federal rule require some court action before allowing a dismissal by the prosecution. Federal cases interpreting Rule 48 provide us with a background and helpful framework for the application of this rule. See United States v. Welborn, 849 F.2d 980 (5th Cir. 1988); United States v. Salinas, 693 F.2d 348 (5th Cir.1982); United States v. Cowan, 524 F.2d 504 (5th Cir.1975); United States v. Ammidown, 497 F.2d 615 (D.C.Cir.1973); United States v. Greater Blouse, Skirt & Neckwear Contractors Ass'n, 228 F. Supp. 483 (S.D.N.Y.1964). At common law, the decision not to prosecute was one entirely left to the prosecutor. Ammidown, 497 F.2d at 620. The rule was drafted to reflect the common law, but was amended to require the prosecution to clearly state the reasons for such dismissal. Id. Prior to being adopted by Congress, the Supreme Court reviewed the rule and changed it to eliminate the need to state the reasons for the dismissal and added the requirement "by leave of court" without explanation. Salinas, 693 F.2d at 350-51. Courts have interpreted this phrase to give trial courts discretion when entertaining motions to dismiss by the prosecution. Id. at 351. Generally, the prosecuting attorney is considered to be in the best position to evaluate the charges and the evidence to determine if prosecution should continue. Id. at 351. The prosecution is entitled to a presumption of good faith when requesting a dismissal. However, that decision is not absolute and is subject to review by the trial court under Rule 48(a). Welborn, 849 F.2d at 983; Greater Blouse, 228 F. Supp. at 486. Rule 48(a) has been viewed as a way to check the absolute power of the executive. Salinas, 693 F.2d at 351. Although the prosecutor has discretion in this area, the trial court should not merely serve as a "rubber stamp" for the prosecutor's decision. Ammidown, 497 F.2d at 622. The trial court has an important function to protect the public interest and prevent harassment of the defendant. Id. The prosecutor should be denied a dismissal, if the trial court is satisfied that the prosecutor is acting in bad faith, contrary to public interest, or intentionally harassing the defendant. This determination should be made by clear and convincing evidence. Greater Blouse, 228 F. Supp. at 486. Greater Blouse, states that, "where it appears (1) that the Government is without sufficient evidence to warrant prosecution and sustain a conviction, and (2) the dismissal is not for the purpose of the subjecting a defendant to harassment by the commencement of another prosecution at a different time or at a place deemed more favorable to the prosecution," the prosecution should be granted a dismissal. Id. at 486-87. Our rule is also similar to the Colorado rule. We look to Colorado's interpretation for guidance. In People v. Lichtenstein, 630 P.2d 70 (Colo.1981), the Supreme Court of Colorado addressed the denial of the prosecutor's motion to dismiss. The Supreme Court found that the trial court incorrectly denied the motion to dismiss a second count against the defendant. The Supreme Court concluded: Lichtenstein, 630 P.2d at 73 (citations omitted). Rule 48(a) does not allow the prosecutor total freedom to dismiss charges on a whim. The prosecutor must clearly state *859 the reasons for such a request. The trial court has the responsibility to protect the interests of the defendant and the public. A finding of harassment must be clearly supported and would certainly justify a dismissal with prejudice. The District Court did not make any specific findings in this case. The District Court states that the hearing transcript provides the basis for the decision not to dismiss. The transcript reveals the following: The transcript indicates a basis for claims of harassment or misconduct. However, there was no hearing or explicit finding on the issue of harassment or misconduct of the investigating officials. If the District Court is to deny the State's motion to dismiss without prejudice, there should be an evidentiary hearing to determine issues raised by the defense. If so, the District Court will have an opportunity to determine issues of bad faith, harassment, or misconduct as alleged by the defendant, and if such is found, it could support a denial of the State's motion or a dismissal with prejudice. See United States v. Batres-Santolino, 521 F. Supp. 744 (N.D.Cal.1981) (indictment dismissed due to outrageous government conduct). We grant the original writ to the extent that the District Court shall order a dismissal without prejudice of the charges in this case, subject to the defense previous to dismissal or upon subsequent criminal proceedings, requesting an evidentiary hearing upon its claims of bad faith or misconduct on the part of the prosecution or law enforcement authorities. The trial of the matter is stayed pending such action. ERICKSTAD, C.J., LEVINE and MESCHKE, JJ., and VERNON R. PEDERSON, Surrogate Judge, concur. *860 VERNON R. PEDERSON, Surrogate Judge, sitting in the place of VANDE WALLE, J., disqualified. [1] N.D.C.C. § 27-02-04, states: The supreme court may exercise appellate jurisdiction only, except when otherwise specially provided by law or by the constitution. Such court, in the exercise of its original jurisdiction, may issue writs of habeas corpus, mandamus, quo warranto, certiorari, and injunction. In the exercise of its appellate jurisdiction, and in its superintending control over inferior courts, it may issue such original and remedial writs as are necessary to the proper exercise of such jurisdiction. Such court shall exercise its original jurisdiction only in habeas corpus cases and in such cases of strictly public concern as involve questions affecting the sovereign rights of this state or its franchises or privileges. [2] The comments to this rule indicate that it follows the Federal Rules of Criminal Procedure and is an adaptation of the Colorado Rules of Criminal Procedure 48(a), which states in part: (a) By the State. No criminal case pending in any court shall be dismissed or a nolle prosequi therein entered by any prosecuting attorney or his deputy, unless upon a motion in open court, and with the court's consent and approval. Such a motion shall be supported or accompanied by a written statement concisely stating the reasons for the action. The statement shall be filed with the record of the particular case and be open to public inspection. Such a dismissal may not be filed during the trial without the defendant's consent.