[Cite as Cleveland MetroParks v. Sferra, 2018-Ohio-3169.]

Court of Appeals of Ohio 

EIGHTH APPELLATE DISTRICT 

COUNTY OF CUYAHOGA 

JOURNAL ENTRY AND OPINION 

No. 106341

CLEVELAND METROPARKS

PLAINTIFF-APPELLEE 

vs. 

MATTHEW L. SFERRA

DEFENDANT-APPELLANT 

JUDGMENT: 

AFFIRMED 

Criminal Appeal from the 

Cleveland Municipal Court 

Case No. 2017 CRB 015713 

BEFORE: Laster Mays, J., Kilbane, P.J., and McCormack, J. 

RELEASED AND JOURNALIZED: August 9, 2018 

-i- 
FOR APPELLANT 

Matthew L. Sferra, pro se 

21 Everette Road 

Painesville, Ohio 44077 

ATTORNEY FOR APPELLEE 

Anne Eisenhower 

Chief Prosecuting Attorney 

Cleveland Metroparks 

4600 Valley Parkway 

Fairview Park, Ohio 44126 
ANITA LASTER MAYS, J.: 

{¶1} Defendant-appellant, Matthew L. Sferra (“Sferra”), proceeding pro se, appeals 

the decision of the Cleveland Municipal Court finding him guilty of operating a watercraft at 

Edgewater Beach between sunset and sunrise (R.C. 1547.41(A)(3)) and failure to disclose 

personal information (R.C. 2921.29(A)(1)) when asked for identification. Sferra claims that the 

Marine Patrol Unit of the Cleveland Metroparks Rangers Department (“CMRD Unit”) lacked 

jurisdiction and authority to arrest him. We affirm the trial court’s judgment. 

I. Background and Facts

{¶2} At the August 3, 2017 arraignment in the Cleveland Municipal Court, Sferra 

refused to be represented by counsel and refused to enter a plea. Sferra asked “to motion the 

Court to show me jurisdiction.” (Arraignment, tr. 3.) Sferra objected to the trial court’s entry 

of a not guilty plea on his behalf, stating “[t]his is a commercial court.” (Arraignment, tr. 4.) 

{¶3} At the August 23, 2017 pretrial, the trial court entertained Sferra’s motion to 

dismiss for lack of jurisdiction where he argued that: (1) he had not entered into a commercial 

contract allowing personal jurisdiction; (2) no crimes had been committed; (3) no party had been 

damaged or injured; (4) the driver’s license number on the citation did not relate to the jet ski; 

and (5) reserving his rights under sections “1-207 also known as 308” of the Uniform 

Commercial Code. (Pretrial, tr. 4.) The motion was denied. 

{¶4} CMRD Unit Sergeant Willits (“Sgt. Willits”) and Rangers Shearn and DeClant 

testified at the September 20, 2017 trial. The rangers explained that the CMRD Unit are 
commissioned as special deputies with the Cuyahoga County Sheriff’s Office that gives them 

jurisdiction to patrol the waters in Cuyahoga County. 

{¶5} On July 20, 2017, shortly before sunset at 8:55 p.m., the rangers were patrolling the 

Edgewater Beach areas of Cuyahoga County in an official patrol vessel. The rangers were 

advising operators of personal watercrafts such as jet skis of the requirement to beach the 

vehicles at sunset pursuant to law. The CMRD Unit observed a female operator and a male 

passenger riding on a jet ski and announced that the jet ski must cease operations in 15 minutes. 

{¶6} The CMRD Unit subsequently observed the jet ski move toward the beach and later 

toward Rocky River with a female operator and a female passenger. Within five to ten minutes, 

the rangers observed the jet ski returning to Edgewater. As the rangers approached, the jet ski 

headed into a shallow area where the rangers could not follow. The jet ski did not respond to 

the rangers’ horn and siren and continued to the beach. Approximately five minutes later, ten 

minutes after sunset, the rangers observed Sferra get onto the jet ski on the beach and head out 

into the lake. 

{¶7} The rangers activated lights for Sferra to inform Sferra that he should approach the 

boat. Sferra was informed by Ranger Shearn that he was violating the law by operating the jet 

ski after sunset. Sferra refused to provide identification, explaining that the rangers lacked 

authority to stop him. Sferra was warned that he would be detained and his jet ski impounded 

until he provided identification. 

{¶8} Sferra was taken to the CMRD Unit dock where he finally provided identifying 

information to prevent detention and impoundment of the jet ski. He received a citation for the 

violation, and maintained that he did not agree that the CMRD Unit had legal authority to act, 

and he requested to opt out of the law. 
{¶9} Sferra refused to cross-examine the witnesses, present a defense, or otherwise 

participate in the proceedings except to say that the trial court lacked jurisdiction and that he 

planned to appeal. 

II. Assignments of Error 

{¶10} Sferra presents the following assigned errors: 

I. Rights were affected. 

 

II. Effect of erroneous ruling. 

III. The trial court erred in practicing law from the bench when it entered a 

plea of “not guilty” on both charges in order to preserve the rights of 

appellant. 

IV. The evidence was insufficient to support the conviction. 

V. Appellant’s conviction was against the manifest weight of the evidence. 

III. Discussion

A. Rights were affected 

{¶11} Here Sferra argues that the watercraft citation violates his Fifth Amendment 

right to travel as judicially recognized in Kent v. Dulles, 357 U.S. 116, 125, 78 S.Ct. 1113, 2 

L.Ed.2d 1204 (1958). “The right to travel is a part of the ‘liberty’ of which the citizen cannot be 

deprived without due process of law under the Fifth Amendment.” Id. 

{¶12} Interstate travel is a “fundamental right under the United States Constitution” that 

“may only be limited by a compelling government interest.” Cleveland v. Wilson, 

2017-Ohio-540, 85 N.E.3d 299, ¶ 11 (8th Dist.), citing Shapiro v. Thompson, 394 U.S. 618, 631, 

89 S.Ct. 1322, 22 L.Ed.2d 600 (1969), overruled in part on other grounds, Edelman v. Jordan, 

415 U.S. 651, 94 S.Ct. 1347, 39 L.Ed.2d 662 (1974). 

{¶13} This case does not involve interstate travel, rather it involves the operation of a 
watercraft within the state. We find that, like the operation of a motor vehicle, operating a 

watercraft is a privilege1 that is subject to regulation under Ohio’s police powers. Id. at ¶ 12, 

citing State v. Bradley, 12th Dist. Warren No. CA89-09-052, 1990 Ohio App. LEXIS 1270, at 7 

(Apr. 2, 1990), citing State v. Starnes, 21 Ohio St.2d 38, 45, 254 N.E.2d 675 (1970), and 

Breithaupt v. Abram, 352 U.S. 432, 439, 77 S.Ct. 408, 1 L.Ed.2d 448 (1957). 

{¶14} Ohio has reserved “the exclusive right to regulate the minimum equipment 

requirements of watercraft” “operated on the waters in this state.” R.C. 1547.02. That regulation 

is in addition to federal law except where inconsistent. Id. While the Ohio Department of 

Natural Resources (“ODNR”) is responsible for the “care, protection, and enforcement” of 

Ohio’s Lake Erie waterway rights, that jurisdiction is not exclusive. 2006 Ohio Atty.Gen.Ops. 

No. 2006-043, at p. 12, citing R.C. 1506.10. 

{¶15} The jurisdiction of the ODNR’s forest, preserve, park, and watercraft officers is 

concurrent with the peace officers of the jurisdiction where the violation occurs. Id., citing 1996 

Ohio Atty.Gen.Ops. No. 96-014 at 2-59 and supporting statute R.C. 1531.16. “[C]ounty sheriffs 

and deputy sheriffs ‘shall have the power conferred upon wildlife officers.’” Id., citing R.C. 

1531.16. 

{¶16} Sheriffs of the lakefront counties including Cuyahoga County “are authorized to 

enforce the laws of Ohio on the waters of Lake Erie that are within” their territorial boundaries. 

Id. The Lake Erie boundary extends to the international boundary between the United States and 

Canada on Lake Erie. The Cuyahoga County Public Safety Marine Patrol Unit division of the 

 1

 “There is a citizenship of the United States and a citizenship of the [s]tate which are distinct from each 

other, Slaughter-House Cases, 83 U.S. 36, 21 L.Ed. 394 (1872); and privileges and immunities, although 

fundamental, which do not arise out of the nature and character of the National Government, or are not specifically 

protected by the Federal Constitution, are attributes of state, and not of [n]ational, citizenship.” Twining v. New 

Jersey, 211 U.S. 78, 29 S.Ct. 14, 53 L.Ed. 97 (1908). 
Cuyahoga County Sheriff’s Office is also charged with enforcing state and local laws along Lake 

Erie. The rangers testified that officers of the CMRD Unit are commissioned as special deputies 

with the Cuyahoga County Sheriff's Office. The rangers had authority to issue the citations in this 

case. 

{¶17} R.C. 1901.20 gives the Cleveland Municipal Court jurisdiction to hear 

misdemeanor cases committed within its territory and over traffic violations. Cleveland v. 

Hasan, 8th Dist. Cuyahoga No. 98490, 2013-Ohio-820, ¶ 16, citing State ex rel. Brady v. Howell, 

49 Ohio St.2d 195, 360 N.E.2d 704 (1977). 

{¶18} The first assignment of error is without merit. 

B. Effect of Erroneous Ruling 

{¶19} Our determination under the first assigned error, finding that jurisdiction exists in 

this case and that Sferra’s Fifth Amendment rights have not been infringed, renders the second 

assigned error moot. App.R. 12(A). Sferra also proffers a brief argument addressing the 

sufficiency of the evidence. We will respond to that argument under the fourth assigned error that 

specifically challenges sufficiency. 

C. Trial Court’s Entry of a Not Guilty Plea on Appellant’s Behalf 

{¶20} Sferra’s third assigned error challenges the authority of the trial judge to enter a 

not guilty plea on Sferra’s behalf after Sferra refused to plead, refused the appointment of 

counsel, and was otherwise uncooperative in at the arraignment proceedings. Sferra posits that 

the trial court’s conduct constituted the practice of law under R.C. 4705.01 and 2301.33. We 

find that Sferra misconstrues those statutes. 

{¶21} R.C. 4705.01 and 2301.33 prohibit a judge from engaging in the practice of law 

in a representative capacity during the judge’s term in office. Grub v. Karras, 11th Dist. Lake 
No. 2000-L-099, 2001 Ohio App. LEXIS 3194, at 7-8 (July 13, 2001), citing R.C. 4705.01 and 

Canon 4(F) of the Code of Judicial Conduct.2 The purpose of these statutes and ethical canons 

is to preserve the integrity and impartiality of the judiciary. “A judge shall uphold and promote 

the independence, integrity, and impartiality of the judiciary, and shall avoid impropriety and the 

appearance of impropriety.” Canon 1 of the Code of Judicial Conduct. 

{¶22} The trial court’s conduct is authorized by Crim.R. 11(A), which provides, “[i]f a 

defendant refuses to plead, the court shall enter a plea of not guilty on behalf of the defendant.” 

Westlake v. Smith, 8th Dist. Cuyahoga Nos. 49343 and 49344, 1985 Ohio App. LEXIS 7250, at 

10 (Oct. 3, 1985). Sferra repeatedly refused to enter a plea, and he was not prejudiced by the 

trial court’s application of this rule. Id. 

D. Manifest Weight and Sufficiency of the Evidence

{¶23} We combine the fourth and fifth assigned errors questioning the sufficiency and 

weight of the evidence for purposes of judicial economy. 

{¶24} “The legal concepts of sufficiency of the evidence and weight of the evidence are 

both quantitatively and qualitatively different.” State v. Thompkins, 78 Ohio St.3d 380, 386, 678 

N.E.2d 541 (1997). A challenge to the sufficiency of the evidence is a question of law that asks 

whether the state met its burden of production. A manifest weight challenge is a question of fact 

and asks whether the state met its burden of persuasion. State v. Jackson, 8th Dist. Cuyahoga 

No. 88028, 2007-Ohio-823, ¶ 11, citing Thompkins at 386. 

{¶25} The sufficiency inquiry is not whether the prosecution’s evidence “is to be 

believed, but whether, if believed, the evidence admitted at trial supported the conviction.” 

 2

 Canon 4(F) is currently Canon 3, Rule 3.10 of the Ohio Code of Judicial Conduct (Effective Mar. 1, 

2009; as amended June 6, 2017). 
State v. Rudd, 8th Dist. Cuyahoga No. 102754, 2016-Ohio-106, ¶ 32, citing State v. Starks, 8th 

Dist. Cuyahoga No. 91682, 2009-Ohio-3375, ¶ 25. We view the evidence in a light most 

favorable to the prosecution and determine whether “‘any rational trier of fact could have found 

the essential elements of the crime proven beyond a reasonable doubt.’” State v. Leonard, 104 

Ohio St.3d 54, 2004-Ohio-6235, 818 N.E.2d 229, ¶ 77, quoting State v. Jenks, 61 Ohio St.3d 

259, 574 N.E.2d 492 (1991), paragraph two of the syllabus. 

{¶26} In our manifest weight review of a bench trial verdict, we recognize that the trial 

court is serving as the factfinder, and not a jury: 

“Accordingly, to warrant reversal from a bench trial under a manifest weight of 

the evidence claim, this court must review the entire record, weigh the evidence 

and all reasonable inferences, consider the credibility of witnesses and determine 

whether in resolving conflicts in evidence, the trial court clearly lost its way and 

created such a manifest miscarriage of justice that the judgment must be reversed 

and a new trial ordered.” 

State v. Strickland, 183 Ohio App.3d 602, 2009-Ohio-3906, 918 N.E.2d 170, ¶ 25 (8th Dist.), 

quoting Cleveland v. Welms, 169 Ohio App.3d 600, 2006-Ohio-6441, 863 N.E.2d 1125 (8th 

Dist.), citing Thompkins at 390. See also State v. Kessler, 8th Dist. Cuyahoga No. 93340, 

2010-Ohio-2094, ¶ 13. 

{¶27} Further, 

Although sufficiency and manifest weight are different legal concepts, manifest 

weight subsumes sufficiency in conducting the legal analysis; that is, a finding 

that a conviction was supported by the manifest weight necessarily includes a 

finding of sufficiency. Thus, a determination that a conviction is supported by the 

weight of the evidence will also dispose of the issue of sufficiency. 

State v. Jackson, 8th Dist. Cuyahoga No. 100125, 2015-Ohio-1946, ¶ 11, citing Thompkins at

paragraph two of the syllabus. 

{¶28} R.C. 1547.41(A)(3) provides that “[n]o person shall operate a personal watercraft 
at any time between sunset and sunrise.” R.C. 2921.29(A)(1) prohibits an individual from 

refusing to provide identification to a law enforcement officer who has a reasonable suspicion 

that the person is committing or is about to commit a criminal offense. 

{¶29} Sferra offered no evidence rebutting that of the state as to the elements of the 

charges. Sferra was cited for operating a watercraft after sunset and repeatedly refused to 

provide identification until detention and impoundment were imminent. 

{¶30} Sgt. Willits and Rangers Shearn and DeClant testified based on their direct 

observations and interactions with Sferra. Each ranger personally observed the jet ski operations 

on the evening in question. Each ranger testified that Sferra was the individual operating the jet 

ski after sunset, and that Sferra refused to provide identification until advised that he would be 

detained and the jet ski impounded. 

{¶31} After a thorough review of the record, we find sufficient evidence to sustain the 

convictions. We further find that the convictions are not against the manifest weight of the 

evidence. 

{¶32} Sferra’s fourth and fifth assignments of error are overruled. 

IV. Conclusion

{¶33} Appellant’s convictions are affirmed. 

 It is ordered that appellee recover from appellant costs herein taxed. 

The court finds there were reasonable grounds for this appeal. 

It is ordered that a special mandate issue out of this court directing the Cleveland 

Municipal Court to carry this judgment into execution. 

A certified copy of this entry shall constitute the mandate pursuant to Rule 27 of the 

Rules of Appellate Procedure. 
______________________________________ 

ANITA LASTER MAYS, JUDGE 

MARY EILEEN KILBANE, P.J., and 

TIM McCORMACK, J., CONCUR