Title: State Ex Rel. Gillespie v. Kendrick

State: west-virginia

Issuer: West Virginia Supreme Court

Document:

265 S.E.2d 537 (1980) STATE ex rel. Everett Ray GILLESPIE v. Earl G. KENDRICK, Sheriff, etc., et al. No. 14731. Supreme Court of Appeals of West Virginia. April 4, 1980. *538 John R. Frazier, Princeton, for relator. Chauncey H. Browning, Jr., Atty. Gen., Joseph C. Cometti, Asst. Atty. Gen., Charleston, for respondent. HARSHBARGER, Justice: This original proceeding in prohibition and habeas corpus seeks Everett Ray Gillespie's immediate release from the Mercer County Jail and an order prohibiting that county's Circuit Court from adding thirty-two days to his sentence. Gillespie pled guilty on November 21, 1978 to attempting to commit a felony. On November 30, 1978, he was sentenced to serve one year in the county jail to begin December 4, 1978. The sentencing order provided that he was to be released every Monday through Friday from 7:00 a. m. to 7:00 p. m. to work. He was employed by Dodson Brothers and regularly left the jail and returned to it each day during the period of his confinement. But in July, 1979, he was terminated by his original employer. He did not inform the jail and continued to leave during the allotted hours. He testified that he sought other employment and did at times work at odd jobs. *539 His work release privilege was revoked on October 9, 1979, when jail personnel learned that he was no longer employed by Dodson Brothers. A probation officer petitioned the trial court to extend Gillespie's term of confinement beyond December 3, 1979, to compensate for the time he spent out of jail on work release while not employed; and after a hearing the court ordered that he serve an additional thirty-two days. Gillespie's petition alleges that he was entitled to good time credit under W.Va. Code, 7-8-11, which he was not granted by the sheriff, and such credit would be for a greater period of time than the extended sentence; that imposition of an additional thirty-two days to his sentence violated his double jeopardy rights; and that the circuit court had no authority to extend his sentence past December 3. W.Va.Code, 7-8-11 [1963],[1] provides for deductions from sentences of prisoners in county jails for good conduct or donating blood. We have written several times on the state prison good time statute, but have never interpreted 7-8-11. The county jail good time statute is mandatory. Every prisoner sentenced to six months or more "shall be entitled to a deduction of five days from each month of his sentence," if he complies with jail rules and regulations or donates blood. Code, 28-5-27 [1923],[2] was similar in construction and wording to the county jail statute when interpreted in Woods v. Whyte, W.Va., 247 S.E.2d 830 (1978): . . . . . See also Watts v. Skeen, 132 W.Va. 737, 54 S.E.2d 563 (1949) where the Court speaks about "entitlement to good time credit which has been earned"; and 46 Op.Att'y Gen. 159 (1955). The revised penitentiary good time statute, Code, 28-5-28 [1979], is also mandatory. Woodring v. Whyte, W.Va., 242 S.E.2d 238 (1978). The good time credit law for federal prisoners, 18 U.S.C. § 4161,[3] follows the language *540 of our county jail and former state penitentiary good time statutes and has been held to entitle prisoners to good time credit unless they have not faithfully observed all the rules. A federal district court stated in Downes v. Norton, 360 F. Supp. 1151 (D.Conn.1973): We have consistently held that legislative use of "shall", means that that to which the word applies must be done, absent a showing of contrary intent. Woodring, supra; Terry v. Sencindiver, 153 W.Va. 651, 171 S.E.2d 480 (1969), Syllabus Point 2. Therefore, county jail prisoners have the statutory right to good time credit and it is mandatory that they be granted their credits if they "faithfully comply with all rules and regulations". Code, 7-8-11.[4] Mercer County's sheriff has not promulgated any rules or regulations governing conduct of inmates in his jail and the government argues that Gillespie is not entitled to good time credit because there were no rules for him to obey. Good time credit is a valuable liberty interest protected by the due process clause. The Supreme Court elaborated in Wolff v. McDonnell, 418 U.S. 539, 557-58, 94 S. Ct. 2963, 2975-76, 41 L. Ed. 2d 935 (1974): . . . . . In Wolff, supra, the Court established minimum due process standards which must be met before a state can revoke a prisoner's statutory right to good time. The Nebraska penal system, which was challenged in Wolff, had rules about standards of conduct for prisoners, and so the Court was not required to answer whether due process requires the publication of rules and regulations. Other courts have decided that written rules are a prerequisite to deprivation of rights based on failure to comply therewith. The opinions address both deprivation of good time credit and punishment such as segregation. Good time credit and freedom from additional confinement within jail are liberty interests to which due process considerations apply equally. In Bones v. Warden, New York City Correctional Institution for Men, 77 Misc.2d 617, 352 N.Y.S.2d 119 (Sup.Ct., Bronx County, 1974), Bones sought restoration of 85 days' good time credit. The record shows many instances of failure to accord Petitioner due process. The most glaring example was the failure on the part of Respondent to provide Petitioner with published rules. . . . Therefore Petitioner was never informed of the acts which constitute disciplinary infractions and the penalties which may be imposed for said acts. . . . The *542 failure to promulgate written rules and make them readily and easily available to the inmate population clearly constitutes a denial of minimal due process. (Rhem v. McGrath, 326 F. Supp. 681 (S.D.N.Y. 1971.) We agree with those courts that have held that minimum due process standards must be accorded prisoners with respect to their statutorily created good time credit rights. And the first requirement imposed on a government agency responsible for prisoners, by the federal constitution's Fourteenth Amendment and our state due process clause in W.Va.Const. art. III, § 10 is publication of rules and regulations to apprise them of the conduct required for them to earn good time credits.[5] The Supreme Court of Tennessee dealt with failure by officials to keep records on the conduct of inmates, where there was no legislative requirement that they do so: . . . . . This logic applies here. Although a sheriff is not statutorily required to keep records of conduct,[6] the absence of such records will work presumptively in a prisoner's favor. A county jail prisoner will be presumed to have conducted himself well and will be entitled to the good time credit established by Code, 7-8-11 unless he has a recorded history of misconduct. Even if Gillespie were not entitled to his earned good time, the lengthened sentence violated his right to be free from multiple punishments for the same offense as guaranteed by the federal double jeopardy clause, U.S.Const. amend. V, made applicable to the states by the Fourteenth Amendment, and the state double jeopardy clause, W.Va.Const. art. III, § 5. We wrote about a similar double jeopardy claim in Conner v. Griffith, W.Va., 238 S.E.2d 529 (1977), involving multiple punishments. Code, 62-11A-1, provides in relevant part: (a) To work at his employment; . . . . . (f) To devote time to any other purpose approved by the court. . . . . . The state contends that after Gillespie's dismissal from employment in July, the time he spent out of the jail was equivalent to an escape. As an escapee, the state continues, he was not "in custody", did not serve his sentence, and the additional thirty-two day sentence was not a multiple punishment. This position is contrary to Conner: Gillespie was certainly more restricted on the work-release privilege than he would have been on parole. If time served on parole is to be considered against a sentence, time spent in a work release program should be treated in the same fashion. Conner, supra. The statute governing violation of parole, W.Va.Code, 62-12-19, like the one governing work release, W.Va.Code, 62-11A-1, nowhere authorizes the court to impose an additional sentence for its violation. Both statutes provide that a violation will result in a return to confinement.[7] The failure of Mercer County officials to detect Gillespie's work release violation does not subject him to alternative remedies which are not provided by statute. A trial court has a statutory duty, W.Va.Code, 62-11A-1(7) not to grant work release privileges unless adequate arrangements are made for their implementation and administration. The following colloquy in the deposition by Sheriff Kendrick indicates that the court did not follow the statute: . . . . . Forfeiture of time spent on work release by imposition of an additional thirty-two day sentence has the direct effect of increasing the time a prisoner must serve on his underlying sentence. It constitutes multiple punishment for the same offense and violates the Double Jeopardy Clause of the W.Va.Const. art. III, § 5. Conner, supra. Gillespie is entitled to immediate release because he has served his full sentence. Writs granted. A. All inmates must conduct themselves with decency and in an orderly manner. B. All inmates shall refrain from the use of profanity, loud whistling, singing or yelling from one part of the jail to another or any indecent conduct. C. An inmate shall not be permitted to have more than five dollars ($5) in their possession. All property will be returned to the prisoner at the time of his release. D. No inmate shall engage in gambling in any manner. E. All inmates are required to bathe with soap and hot water at least once a day. F. Inmates, both sentenced and unsentenced, are required to keep their cells clean. This includes sweeping and mopping the floors, cleaning the walls, wiping the bars, both the cell area and those along the guard walk, cleaning the toilets and basins. G. An inmate shall not remove blankets, pillows, sheets or mattresses from the cell area. Nor shall same be placed on the floor or in front of the cell. H. Inmates shall not be permitted to keep any articles whatsoever under their mattresses. This is to prevent the accumulation of dirt and vermin. Articles such as letters, books, etc. will be kept neatly in a box under the bunk. I. An inmate caught trying to smuggle into the jail any firearms, files, saws, narcotics or any other contraband will be punished and may be liable to an additional term of imprisonment. J. Kangaroo Courts are forbidden. Any inmate found to be a member of such an organization will be punished. Prisoners will not be allowed to impose punishment upon each other. K. An inmate caught destroying jail property (state, county, city) will be charged and may be subject to additional sentencing. L. An inmate shall at no time speak to a jailer in a disrespectful tone or curse any jailer. M. Packages with clean clothing may be mailed or left at the jail at any time. *545 N. Inmates are allowed to have a small transistor radio with an earplug. This earplug is to be used so as not to disturb other inmates in the cell or in other cells throughout the jail. Stereos are forbidden. O. Inmates may have in cell areas newspapers or magazines. However, an inmate shall not place same over cell area or walls. P. An inmate shall not draw and/or post graffiti on walls of cell or jail. A. Purpose A well-disciplined institution facilitates correctional objectives, permits individuals to live in harmony with one another and allows them to concentrate on self-improvement rather than self-protection. B. Policy When an inmate's behavior endangers or threatens to endanger the welfare of others or himself or is contrary to the security of the institution, he is subject to being disciplined for his misbehavior. Any of the following enumerated catefories and topics of offenses will subject an inmate to disciplinary action. C. Minimum and maximum penalties which may be imposed by the adjustment committee (in order of severity). NOTE: Good Conduct time taken as described above may be restored by the Sheriff of the Institution upon a showing of good cause. D. PrinciplesAdministration of disciplineThe Sheriff or Director of this institution is responsible for the guidance and direction of institutional staff in the handling of disciplinary matters. In administering disciplinary policy at the institutional level, the following guidelines are employed. E. Adjustment CommitteeThis institution will establish a committee known as the Adjustment Committee, composed of no less than one nor more than five disinterested members to administer discipline. A member of the staff bringing charges against an inmate shall not act as a member of the committee, hearing that particular case. Therefore, in any individual case, the member of the staff who charged an inmate with misbehavior will not sit in judgment of that inmate. The Committee will settle each case only on the basis of the evidence presented at the hearing and an inmates prior disciplinary record if any will not be introduced or considered in determining the inmate's guilt or innocence. F. Report of MisconductMisbehavior will be promptly reported to the supervising officer. A misconduct report will be initiated and will include the specific rule violated and the fact surrounding the same. The report should be typewritten and a copy will be given to the inmate as soon as practical after preparation. G. Minor MisconductThe officer in charge of the shift may impose a minor penalty (reprimand or warning or loss of privilege, cell restriction or other similar punishments). A misconduct report will be completed by the officer in charge which will include the specific rule fiolation. The exact penalty being imposed and its duration, a copy of the written report will be given to the inmate. The inmate is advised that he may appeal the officer's decision to the Adjustment Committee. In case of appeal, the matter is handled as described under paragraph "II" below. H. Major MisconductIf the case is referred to the Adjustment Committee, the inmate may be placed in detention when the officer considers his behavior to be dangerous to persons or property for a period of not more than two (2) working days, until he appears before the committee. *547 The hearing should take place within two (2) working days after report of the infraction. Prior to the hearing, the inmate may request assistance to help him present the case. The inmate may have the assistance of a counselor/advisor and an opportunity to prepare before the hearing. Counselors could be drawn from the following: D. Inmates who are vulnerable to attack, physically and sexually, should be insured all possible protection. Whenever possible, we will seek to establish separate cells or facilities for inmates with major medical problems. E. Where inmates are separated for their own protection, privileges which otherwise would have been available to them, shall not be denied. This facility will encourage Vocational Education and Counseling (Alcoholic and Narcotic) Programs available to inmates who would like to take part in them. Both pre-release and work release programs shall be encouraged. A. Attorneys will be given access to visits with their clients during regular business hours and other reasonable hours, nights and weekend visits should be permitted where practical and possible. B. Conversations with attorneys are confidential and jail personnel may not listen to them. A. This facility shall designate hours, at reasonable times, when prisoners may have visitors. The establishment of daily visiting hours will be fixed and posted by the Sheriff. C. All inmates shall have the right to confidential visits with the following persons: A. When a prisoner arrives at the jail, he/she will be allowed to make at least one completed phone call to the intended party to notify friends or relatives, attorney or bondsman. Local calls will be free and long distance calls will be reversed. B. This facility shall make provisions for a reasonable number of weekly calls and may impose reasonable restrictions on the length and number of all telephone calls. Messages from attorneys to inmates asking that calls be returned will be delivered, where possible. A. There shall be no limit on the number of letters an inmate may receive or send. There are no limits as to *550 the people he/she may send mail to or receive mail from. B. All inmates, regardless of their jail status, shall be afforded the same correspondence privileges. C. Correspondence privileges shall not be withdrawn as punishment unless the offense relates directly to abuse of these privileges. D. No letter shall be intentionally delayed in mailing or delivery. Mail that has been delivered for an inmate who has been transferred shall be forwarded. E. An inmate will not be required to sign a waiver consenting to censorship. F. All letters to and from the following categories will not be read and may be inspected in the inmates presence. G. Certified checks or mail money orders will be accepted as money or cash for inmates. Cash will be accepted only if paid in person at the jail. Receipts will be given for all monies accepted. H. All inmates may send or receive packages regardless of their status, except where such privileges have been taken away by disciplinary action. All packages will be searched for contraband in the inmates presence. This institution will establish reasonable regulations as to items which may be received. I. Inmates may subscribe to or receive through the mail any newspaper or magazine or book with the exception of publications which violate United States Postal Regulations, of which advocate the violent overthrow of the Government of the United States or which advocates violence or rebellion against government authority under which the inmate is held. K. Notary services shall be provided for all inmates. Material for notarization are not be be read. A. All inmates shall have access to any existing library facilities. B. This facility has worked out a lending system with the local library in order that books may be available. A. Every inmate shall be allowed to prepare his own legal documents. B. Inmates may purchase or receive legal materials by mail. A. On admittance, an inmate must turn over to the jail officials all personal property other than the items specifically listed below. Inmates may retain in their possession: B. The inmates property will be returned to him upon his release. If an inmate is transferred to another institution, his money and personal property will be forwarded to him. C. Medicines or prescriptions will be kept in the infirmary and will be dispensed by the LPN or paramedic as the inmate needs it when prescribed by physician on call at the jail or the inmates personal physician (at his expense). A. There shall be a physician on call at all times and an LPN or paramedic on duty when possible. If a physician or dentist is not on call in the event of a medical emergency involving an inmate, a physician or dentist will be called immediately or the inmate will be transported immediately to the nearest available medical facility depending on circumstances. B. At no time shall jail personnel diagnose ailments, prescribe medication or administer injections. C. A person shall not be admitted to this facility with obvious physical injury or who is not fully conscious. He shall receive immediate medical attention from a licensed physician. D. An inmate who complains of a medical illness may call a licensed physician of his own choice as it is understood by both the inmate and the physician that the inmate is responsible for the cost of such medical care or treatment. A. On admission, each inmate will be given bedding, toilet paper, towels and other necessities. No inmate shall be held in any cell where there is not a sink, commode, bunk and mattress, except where he/she is likely to use such items in such a way as to pose a substantial danger to himself or property. B. Clean linen and towels will be supplied at least once a week. C. Sanitation equipment will be made available daily to each inmate who shall keep the cell area clean. D. All common rooms, toilets, sinks and cells used by the inmate shall be cleaned daily by the inmates. E. Extermination will be done as often as necessary to keep the jail reasonably free of pest, vermin, lice, bugs, etc. F. Each inmate may be allowed to shower and shave daily and must shower at least twice a week. A. All jails are encouraged to provide indoor recreation and outdoor exercise. Any person held more than thirty (30) days shall be afforded regular physical exercise or activity. B. Inmates shall be allowed to have radios and should be allowed to play them as long as they do not disturb others. C. Television is made available to inmates in the dining room area where funds are available. A. Religious services are provided periodically. An inmate may attend religious services of his/her choice during scheduled hours. An inmate may not be required to attend such services, however. B. An inmate may request to see a chaplain by asking the inspecting deputy to arrange the visit. C. Inmates whose faith requires a special diet will be afforded the same *552 whenever possible and when properly notified. A. Correspondence privileges may never be denied as punishment unless the offense itself relates to abuse of such privileges. B. Bread and water or any other dietary restrictions may not be imposed as punishment. C. Physical restraints (chains, tape, handcuffs, etc.) may not be used to bind an inmate except for transport or where prescribed by a competent physician for the inmates safety. E. Inmates may not be denied bedding, clothing, or toilet articles as punishment nor may they be so restrained as to prevent exercise. G. An inmate shall never be punishment for his/her political belieff, the books which are read or the organizations to which they belong. H. Tear gas, chemical mace or similar instruments may not be used, except where physical injury to person or property is imminent and reasonable otherwise unavoidable. I. An inmate may not be held in punitive segregation for more than fifteen (15) consecutive days for any one offense. [1] Code, 7-8-11. Deduction from sentence for good conduct or donating blood. Every prisoner sentenced to the county jail for a term exceeding six months who, in the judgment of the sheriff, shall faithfully comply with all rules and regulations of said county jail during his term of confinement shall be entitled to a deduction of five days from each month of his sentence. In addition to the foregoing, every prisoner who desires to and does donate blood to any person, agency, organization, corporation or association as may be approved by the sheriff, shall be entitled to a deduction of five days from his sentence for each pint of blood so donated. [2] Code, 28-5-27. Deduction from sentence for good conduct. Every convict sentenced to the penitentiary for a definite term, and not for life, who shall faithfully comply with all the rules and regulations of the penitentiary during his term of confinement, shall be entitled to a deduction of his sentence as follows: Upon a sentence of one year, five days from each month; upon a sentence of more than one year, and less than three years, six days from each month; upon a sentence of not less than three years, and less than five years, seven days from each month; upon a sentence of not less than five years, and less than ten years, eight days from each month; upon a sentence of ten years or more, ten days from each month. When a prisoner has two or more sentences, the aggregate of his several sentences shall be the basis upon which his deduction shall be estimated. [3] 18 U.S.C. § 4161. Computation generally Each prisoner convicted of an offense against the United States and confined in a penal or correctional institution for a definite term other than for life, whose record of conduct shows that he has faithfully observed all the rules and has not been subjected to punishment, shall be entitled to a deduction from the term of his sentence beginning with the day on which the sentence commences to run, as follows . . . [4] In oral argument the Attorney General indicated that a quick survey of county jails revealed that about one-third of them were not granting prisoners any good time credit. Sheriffs cannot ignore this legislative mandate. We expect all sheriffs to immediately grant their prisoners the good time to which they are by this statute, entitled. [5] Included as an Appendix are excerpts from rules promulgated by the Cabell County Sheriff. They are an excellent example of jail regulations designed to protect both prisoners' and government interests. [6] Code, 7-8-2a requires the county to keep daily records showing the total number of prisoners confined, the number of prisoners admitted, the number released, the cost per capita of feeding and care of prisoners in each calendar month and a daily record of food served to prisoners. [7] Code, 62-11A-1(2), supra.