Fl LE 

lil CLERI<S OFFICE 

IUPREM~; C ,-:, '~ii.T, STATE OF WASHIHG'fCN 

DAr;:;JAN 0 9 2014 

-~ 

IN THE SUPREME COURT OF THE STATE OF WASHINGTON 

STATE OF WASHINGTON, 

Respondent, 

v. 

STEPHEN CHRISS JOHNSON, 

Petitioner . 

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No. 86885-9 

ENBANC 

Filed: JAN 0 9 ~914 

FAIRHURST, J.-The Washington State Department of Licensing (DOL) 

·suspended petitioner Stephen Chriss Johnson's driver's license after receiving 

notice that. he had failed to pay a traffic fine. Johnson was later arrested and 

convicted for driving while license suspended in the third degree (DWLS 3rd). 

Johnson appeals his DWLS 3rd conviction on two grounds. First, he argues 

former RCW 46.20.342(1)(c)(iv) (2008), the statute defining DWLS 3rd, did not 

proscribe his continuing to drive after the suspension of his license for failing to 

pay a traffic fine. Alternatively, he argues that because he is indigent, the 

suspension is invalid under the Fourteenth Amendment to the United States 
State v. Johnson, No. 86885-9 

Constitution's due process and equal protection clauses, which Johnson argues 

required the State to inquire into his ability to pay the fine before suspending his 

license, and the State apparently did not do so. Johnson also argues that his 

indigence entitled him to appointed counsel for his appeal and that the district court 

erred by denying him this counsel. Consequently, he seeks reimbursement for 

attorney fees spent in his defense. 

We reject Johnson's challenges to his conviction but remand for further 

proceedings to determine Johnson's right to reimbursement for attorney fees. We 

hold that the plain meaning of former RCW 46.20.342(1 )( c )(iv) allows the State to 

convict a driver for DWLS 3rd where the underlying license suspension occurred 

for failure to pay a fine. We further hold that Johnson is not constitutionally 

indigent, and so we decline to address Johnson's constitutional challenge to the 

suspension of his license because he lacks standing to raise that challenge. Finally, 

we hold that Johnson is statutorily indigent, and we remand Johnson's case to the 

district court with instructions to enter an order designating him either as (1) 

indigent or (2) indigent and able to contribute. If he is able to contribute, the 

district court must enter an order determining the costs he should bear for his 

appeal. 

2 
State v. Johnson, No. 86885-9 

I. FACTUAL BACKGROUND AND PROCEDURAL HISTORY 

Johnson's driver's license expired in 2001, and a dispute with DOL about 

the validity of his mailing address prevented him from renewing it. In 2007, police 

stopped Johnson and issued to him a notice of infraction for driving without a valid 

license. Johnson requested and appeared for a hearing to contest the notice, but the 

district court found he committed the infraction and imposed a fine of $260. 

Johnson did not pay the fine, and DOL suspended his license after the infraction 

trial court notified DOL of his failure to pay. 

In September 2008, nearly 11 months after the effective date of the 

suspension of Johnson's license, a Lewis County deputy sheriff witnessed a truck 

driving without a rear bumper or mud flaps. The deputy ran a check of the truck's 

plates and discovered that DOL had suspended the driver's license of the truck's 

registered owner-Johnson. The deputy then stopped Johnson and arrested him 

for DWLS 3rd. 

Johnson proceeded to trial, where the Lewis County District Court found 

him guilty of DWLS 3rd, imposed an $805.50 fine, and sentenced him to 90 days 

in jail, but suspended all jail time except for the four days Johnson had already 

served. The court offered Johnson a payment plan for the fine, but he refused and 

asked the court to send the fine to collections. 

3 
State v. Johnson, No. 86885-9 

Johnson appealed his conviction to the Lewis County Superior Court. 

During the pendency of this appeal, Johnson moved to replace his appointed 

counsel. Considering this motion, the district court noted that Johnson had filled 

out the forms for determining his status as indigent incompletely and examined 

Johnson under oath to determine whether he had a right to appointed counsel. 

Johnson testified that he had no income, had not worked in nearly 30 years, and 

received state aid in the form of food stamps and energy assistance. However, he 

also testified that he owned his $300,000 home free of liens and had obtained a 

nearly $3 million judgment against his neighbor in a tort suit, although he stated 

the neighbor appeared judgment proof. After this hearing, the district court 

determined that Johnson was not indigent and removed his appointed counsel. 

The superior court affirmed Johnson's conviction. Johnson then moved for 

discretionary review from the Court of Appeals. The court commissioner denied 

review by order, and a panel of the court denied Johnson's motion to modify this 

order. Johnson then moved for discretionary review by this court, which we 

granted. 

II. ISSUES PRESENTED 

A. Do the reasons for license suspension codified in former RCW 

46.20.342(1)(c)(iv) encompass the failure to pay the fine for a traffic 

infraction? 

B. Does Johnson have standing to raise his constitutional challenge to the 

suspension of his license? 

4 
State v. Johnson, No. 86885-9 

C. Did the trial court err in denying Johnson appointed counsel for his appeal? 

III. ANALYSIS 

A. The State proved Johnson violated former RCW 46.20.342(1)(c)(iv) because 

a failure to pay is a failure to comply with the terms of a notice of infraction 

Johnson first contends that his conviction is invalid because while he admits 

he did not pay his fine, he argues that is not one of the enumerated bases on which 

the State may support a DWLS 3rd charge under former RCW 46.20.342(1)(c)(iv). 

We review de novo the meaning of a statute. State v. Siers, 174 Wn.2d 269, 274, 

274 P.3d 358 (2012). 

"In interpreting a statute, our fundamental objective is to ascertain and carry 

out the legislature's intent." State v. Gray, 174 Wn.2d 920, 926, 280 P.3d 1110 

(2012). "To properly understand this statute, we look for its plain meaning, 

'discerned from all that the Legislature has said in the statute and related statutes 

which disclose legislative intent about the provision in question."' Dissent at 2 

(quoting Dep 't of Ecology v. Campbell & Gwinn, LLC, 146 Wn.2d 1, 11, 43 P.3d 4 

(2002)). Where a statute is ambiguous after the plain meaning analysis, "we 'may 

look to the legislative history of the statute and the circumstances surrounding its 

enactment."' State v. Sweany, 174 Wn.2d 909, 915,281 P.3d 305 (2012) (quoting 

Rest. Dev., Inc. v. Cananwill, Inc., 150 Wn.2d 674, 682, 80 P.3d 598 (2003)). The 

statute in question here is not ambiguous. 

5 
State v. Johnson, No. 86885-9 

1. Former RCW 46.20.342 

We begin with the text of the DWLS statute, former RCW 46.20.342, which 

provides, in relevant part: 

( 1) It is unlawful for any person to drive a motor vehicle in this state 

while that person is in a suspended or revoked status or when his or 

her privilege to drive is suspended or revoked in this or any other 

state. 

(c) A person who violates this section when his or her driver's 

license or driving privilege is, at the time of the violation, suspended 

or revoked solely because ... (iv) the person has failed to respond to a 

notice of traffic infraction, failed to appear at a requested hearing, 

violated a written promise to appear in court, or has failed to comply 

with the terms of a notice of traffic infraction or citation, as provided 

in [former] RCW 46.20.289 [(2005)] ... is guilty of driving while 

license suspended or revoked in the third degree, a misdemeanor.[!] 

The reason for the underlying license suspension is an essential element of any 

DWLS charge. State v. Smith, 155 Wn.2d 496, 502, 120 P.3d 559 (2005). 

Consequently, a conviction under former RCW 46.20.342(1)(c)(iv) requires the 

State to prove both (1) that the defendant drove with a suspended license and (2) 

that the license suspension occurred because of one of the enumerated reasonsthat is, that the defendant (a) failed to respond to a notice of infraction, (b) failed to 

appear in court, (c) violated a written promise to appear in court, or (d) failed to 

comply with the tenus of a notice of infraction. 

1

The legislature amended former RCW 46.20.289, effective June 7, 2012, to address the 

concerns voiced by many of the amici in this case. LAws OF 20 12, ch. 82, § 3. 

6 
State v. Johnson, No. 86885-9 

Johnson did not fail to respond to a notice of infraction-} ohnson responded 

by contesting the citation and requesting a hearing, as provided by former RCW 

46.63 .070(3) (2006). Johnson also did not fail to appear in court or violate a 

written promise to appear in court, as provided by former RCW 46.63.070(6)(b)-

it is undisputed Johnson appeared for the hearing he requested to contest his notice 

of infraction. 

However, in failing to pay the fine imposed when the infraction trial court 

rejected Johnson's challenge, Johnson failed to comply with the notice of 

infraction. Former RCW 46.20.342(1)(c)(iv) includes, as an underlying basis for 

suspension supporting a DWLS 3rd charge, suspension imposed because an 

individual did not "comply with the terms of a notice of traffic infraction or 

citation, as provided in [former] RCW 46.20.289." (Emphasis added.) "To be 

reasonable, an interpretation must, at a minimum, account for all the words in a 

statute." Five Corners Family Farmers v. State, 173 Wn.2d 296, 312, 268 P.3d 892 

(20 11 ). We thus cannot ignore that final clause referring to former RCW 

46.20.289; we must instead assume that clause was intended to serve some purpose 

"because we presume the legislature says what it means and means what it says." 

State v. Costich, 152 Wn.2d 463, 470, 98 P.3d 795 (2004). Our task is to 

determine, as a matter of law, what that purpose was. 

7 
State v. Johnson, No. 86885-9 

In the context of former RCW 46.20.342(1)(c)(iv), the reference to former 

RCW 46.20.289 is clearly intended to serve the purpose of adding clarity and 

definition to the terms preceding it. Cf Cuyler v. Adams, 449 U.S. 433, 446, 101 S. 

Ct. 703, 66 L. Ed. 2d 641 (1981) (a reference to a prisoner's rights to resist 

interstate extradition under a detainer agreement, "as provided in" another source 

of law, must be "construed as securing something more" than the rights already 

explicitly provided in the detainer agreement; otherwise, the "as provided in" 

language would be rendered superfluous); State v. Richardson, 81 Wn.2d 111, 116, 

499 P.2d 1264 (1972) (A statutory reference following '"as provided in'" language 

in the implied consent statute "does elucidate in some detail the meaning of the 

words 'qualified person' and a reference to it is logical." (quoting former RCW 

46.61.506 (1975))); see also State v. Bunker, 169 Wn.2d 571, 578, 238 P.3d 487 

(20 10) ("Related to this [last antecedent] rule is the corollary principle that 'the 

presence of a comma before the qualifying phrase is evidence the qualifier is 

intended to apply to all antecedents instead of only the immediately preceding 

one."' (internal quotation marks omitted) (quoting City of Spokane v. Spokane 

County, 158 Wn.2d 661, 673, 146 P.3d 893 (2006))). The legislature intended to 

clarify and add meaning to former RCW 46.20.342(1)(c)(iv) by reference to former 

RCW 46.20.289. 

8 
State v. Johnson, No. 86885-9 

Former RCW 46.20.289 provides, in relevant part, 

[DOL] shall suspend all driving privileges of a person when [DOL] 

receives notice from a court under [former] RCW 46.63.070(6) 

[(2006)], [former] 46.63.110(6) [(2007)], or [former] 46.64.025 

[(2006)] that the person has failed to respond to a notice of traffic 

infraction, failed to appear at a requested hearing, violated a written 

promise to appear in court, or has failed to comply with the terms of a 

notice of traffic infraction or citation. 

Former RCW 46.20.289 thus incorporates further statutes by reference, and, as in 

the case of former RCW 46.20.342(1 )( c )(iv), we may not ignore those 

references-we must presume the legislature included them for a purpose, and 

determine, as a matter of law, what that purpose was. 

Former RCW 46.20.289 plainly requires DOL to suspend a person's driving 

privileges under certain circumstances-specifically, where DOL receives notice 

from a court pursuant to one of the enumerated statutes. We therefore must look to 

the three statutes referenced in former RCW 46.20.289. 

Former RCW 46.63.070(6) requires the relevant court to notify DOL if an 

individual fails to respond to a notice of traffic infraction or failed to appear at a 

requested hearing. This statute is not relevant to Johnson's situation because, as 

noted above, he did respond to his citation, and he did appear in court for his 

requested hearing. Former RCW 46.64.025 requires the relevant court to notify 

DOL "[w]henever any person served with a traffic citation willfully fails to appear 

9 
State v. Johnson, No. 86885-9 

for a scheduled court hearing." Again, because Johnson did appear for his 

scheduled hearing, this statute is inapplicable. 

Former RCW 46.63.110(6), however, addresses situations in which a person 

fails to pay a fine imposed by a court, and is directly applicable to Johnson's 

situation. That statute provides, in relevant2 part: 

Whenever a monetary penalty, fee, cost, assessment, or other 

monetary obligation is imposed by a court under this chapter it is 

immediately payable. 

(b) If a person has not entered into a payment plan with the 

court and has not paid the monetary obligation in full on or before the 

time established for payment, the court shall notify [DOL] of the 

delinquency. [DOL] shall suspend the person's driver's license or 

driving privilege until all monetary obligations have been paid, 

including those imposed under subsections (3) and ( 4) of this section, 

or until the person has entered into a payment plan under this section. 

RCW 46.63.110(6). If failure to pay the monetary penalty assessed by a court 

following an unsuccessful challenge to a notice of traffic infraction was not 

intended to qualify as failure to comply with the notice's terms, the legislature's 

reference to former RCW 46.63.110(6) in former RCW 46.20.289 would be either 

entirely superfluous or utterly nonsensical-every single part of former RCW 

46.63.11 0( 6) applies only to situations where "a monetary penalty, fee, cost, 

assessment, or other monetary obligation is imposed by a court under this chapter" 

2

0ther parts of former RCW 46.63.11 0(6) apply to situations involving payment plans for 

monetary fines imposed due to a traffic infraction. The face of Jolmson's ticket allowed him to 

avail himself of the trial court's ability to offer payment plans or reduce the fine by responding 

within 15 days and seeking a mitigation hearing. He did not do so. 

10 
State v. Johnson, No. 86885-9 

(emphasis added); and former RCW 46.20.289 does not reference any other 

sections of former RCW 46.63.110. We do not interpret statutes in a way that 

would render any statutory language superfluous or nonsensical and will not do so 

here. Bunker, 169 Wn.2d at 578. 

The dissent's discussion of this final, failure-to-comply prong focuses on the 

statute's plain language, as did the dissent's discussion of the other prongs in 

former RCW 46.20.342(1)(c)(iv). However, the dissent apparently alters its 

methodology in analyzing the final prong-in its analyses of the first three prongs, 

the dissent rightfully considers, both explicitly and implicitly, related statutes to 

discern plain meaning. However, the dissent's discussion of the final prong focuses 

solely on a single clause, read in isolation-'" failed to comply with the terms of a 

notice of traffic infraction or citation"'-rather than considering "'all that the 

legislature has said in the statute and related statutes."' Dissent at 2 (quoting 

former RCW 46.20.342(1)(c)(iv) and Campbell & Gwinn, 146 Wn.2d at 11). 

Contrary to the dissent's characterization, we do not "string[ ] an additional 

statute to the tail of former RCW 46.20.342(1 )( c )(iv)." Dissent at 4. The legislature 

is the body that wrote the statute, and the legislature is the body that explicitly 

incorporated former RCW 46.20.289 in the plain language of RCW 

46.20.342(l)(c)(iv). We do not have the option of ignoring that explicit legislative 

directive. 

11 
State v. Johnson, No. 86885-9 

2. The terms of the notice of traffic infraction 

Johnson argues that the terms of the notice of infraction required only that he 

respond and appear and that he had no duty to pay any fine ordered after the 

hearing contesting the infraction. Johnson's argument assumes that the terms of the 

notice of infraction were frozen in time when he initially received the citation. He 

is incorrect. The face of his notice of infraction allowed the infraction trial court to 

impose a penalty after any hearing held to contest the notice of infraction or to 

explain mitigating circumstances. In other words, according to the plain language 

on the face of the notice of infraction, a person who contests a notice of infraction 

may eliminate the duty to pay the fine imposed only if he or she succeeds in 

contesting the infraction. Johnson did not succeed, and the trial court recorded his 

failure on the face of the ticket in open court. Johnson was present in court and also 

received notice of the change to the face of the notice of infraction by order. See 

former RCW 46.63.120 (1979). 

Johnson also claims that the related statutes providing meanmg for the 

phrase "failed to comply with the terms of a notice of traffic infraction or citation," 

former RCW 46.20.342(1)(c)(iv), are the code provisions implementing the 

"Nonresident Violator Compact" (NVC), chapter 46.23 RCW. Under the NVC, 

'" [ c ]itation' means any summons, ticket, notice of infraction, or other official 

12 
State v. Johnson, No. 86885-9 

document issued by a police officer for a traffic offense containing an order which 

requires the motorist to respond" and "' [ t] erms of the citation' means those options 

expressly stated upon the citation." RCW 46.23.010 art. II(1), (11). Johnson thus 

contends that because the notice of infraction did not expressly require him to pay 

a fine, he has not violated its terms. 

Johnson correctly notes that we derive the legislature's intent from related 

statutes. However, he incorrectly determines that the relevant related statute is the 

NYC, rather than the statutes explicitly referenced in former RCW 

46.20.342(1)(c)(iv). While the NYC defines the phrase "'[t]erms of the citation,"' 

RCW 46.23.010 art. II(11), it does not define the circumstances under which one 

has "failed to comply with the terms of a notice of traffic infraction or citation," 

which is the critical phrase for the DWLS 3rd scheme, former RCW 

46.20.342(1 )( c )(iv). The legislature did, however, define a failure to comply with 

the terms of a notice of infraction through former RCW 46.20.342(1)(c)(iv)'s 

incorporation of former RCW 46.20.289 and former RCW 46.63.110(6), as 

discussed above. These are the relevant related statutes, and they demonstrate that 

the legislature considered a failure to pay a fine a failure to comply with the terms 

of a notice of infraction. 

13 
State v. Johnson, No. 86885-9 

3. The ordinary citizen and obscurity by cross-reference 

The dissent contends that "[i]t strains credulity to imagine that an ordinary 

citizen would read into former RCW 46.20.342(1 )( c )(iv) the double incorporation 

the majority reads into the statutory scheme." Dissent at 6. However, it would 

strain credulity even further to imagine that a reasonable ordinary citizen would 

adopt the dissent's interpretation. 

Under the dissent's interpretation, where an individual's license is 

suspended because he or she simply fails to pay the fine indicated on a notice of 

traffic infraction, and where that individual continues to drive following the 

resulting suspension, he or she is guilty of DWLS 3rd under former RCW 

46.20.342(1)(c)(iv). However, where an individual instead chooses to raise a 

challenge to the notice of traffic infraction, appears in court to argue that challenge, 

loses in court, does not pay the fine assessed, and consequently has his or her 

license suspended, that individual may continue to drive without violating former 

RCW 46.20.342(l)(c)(iv). We cannot accept that an ordinary citizen would believe 

he or she would be rewarded in this way for expending judicial resources on an 

unsuccessful challenge to a notice of infraction. 

The dissent further takes issue with the "obscure language" of former RCW 

46.20.342(1 )( c )(iv), and the fact that we must "follow a trail of statutes to pile one 

unclear reference upon another to arrive at the definition of the crime." Dissent at 

14 
State v. Johnson, No. 86885-9 

8. Former RCW 46.20.342(1 )( c )(iv), however, is hardly unique in its requirement 

that one look to multiple other statutes to discern its meaning, and the fact that it 

does so neither renders the statute ambiguous nor gives us license to ignore 

portions of its text. 

By way of comparative example, RCW 46.61.520 defines vehicular 

homicide, in part, as follows: 

( 1) When the death of any person ensues within three years as 

a proximate result of injury proximately caused by the driving of any 

vehicle by any person ... if the driver was operating a motor vehicle: 

(a) While under the influence of intoxicating liquor or any drug, 

as defined by RCW 46.61.502. 

RCW 46.61.502( 1 ), meanwhile, defines driving under the influence of intoxicating 

liquor or any drug as the situation presented when a 

person drives a vehicle within this state: 

(a) And the person has, within two hours after driving, an 

alcohol concentration of 0.08 or higher as shown by analysis of the 

person's breath or blood made under RCW 46.61.506; or 

(b) The person has, within two hours after driving, a THC 

concentration of 5.00 or higher as shown by analysis of the person's 

blood made under RCW 46.61.506; or 

(c) While the person is under the influence of or affected by 

intoxicating liquor, marijuana, or any drug; or 

(d) While the person is under the combined influence of or 

affected by intoxicating liquor, marijuana, and any drug. 

RCW 46.61.506, in turn, provides, among other things: 

15 
State v. Johnson, No. 86885-9 

(3) Analysis of the person's blood or breath to be considered 

valid under the provisions of this section or RCW 46.61.502 or 

46.61.504 shall have been performed according to methods approved 

by the state toxicologist and by an individual possessing a valid 

permit issued by the state toxicologist for this purpose. 

Thus, to determine whether one has committed vehicular homicide pursuant 

to RCW 46.61.520(1)(a), an individual must first look at that statute, then look to 

RCW 46.61.502 to determine whether he or she might meet the legal definition of 

"driving while under the influence," and then look to RCW 46.61.506(3) to 

determine whether the analysis of that individual's blood or breath was legally 

sufficient. 

Using the analytical framework employed by the dissent here, a defendant 

charged with vehicular homicide could admit that he or she drove a motor vehicle 

with an alcohol concentration of 0.09 and admit that he or she injured another 

person while driving, proximately causing that person's death. Nevertheless, the 

defendant would still be able to argue that based on his or her own unique 

physiology and alcohol tolerance, the defendant was not "under the influence" of 

alcohol. It would not matter that RCW 46.61.502(l)(a) plainly defines any alcohol 

concentration above 0.08 asperse sufficient to establish an individual was driving 

"under the influence" because the meaning of that term, as used in RCW 

46.61.520(l)(a), is obscured by cross-references, and so must be interpreted 

16 
State v. Johnson, No. 86885-9 

literally and read in isolation. We will not employ an analytic framework that 

could lead to such absurd results. 

The plain meaning of former RCW 46.20.342(1 )( c )(iv) unambiguously 

supports the State's contention that "fail[ure] to comply with the terms of a notice 

of traffic infraction" includes the failure to pay monetary penalties imposed by a 

court following an unsuccessful challenge to the notice of traffic infraction. We 

reject the interpretations of former RCW 46.20.342(1)(c)(iv) proffered by Johnson 

and by the dissent. 

B. Johnson is not constitutionally indigent and lacks standing to make his 

constitutional challenge to the suspension of his license 

Johnson also challenges his conviction on constitutional grounds. He argues 

that the underlying suspension of his license was invalid under the Fourteenth 

Amendment to the United States Constitution and that an invalid suspension 

cannot support his DWLS 3rd conviction, citing State v. Dolson, 138 Wn.2d 773, 

777, 982 P2d 100 (1999).3 The State contends that Johnson lacks standing to 

contest the underlying suspension of his license on this basis, and we agree. 

To prove he has standing, Johnson must satisfy both prongs of our two 

pronged test. Branson v. Port of Seattle, 152 Wn.2d 862, 876, 101 P.3d 67 (2004). 

3

The Fourteenth Amendment to the United States Constitution provides, in relevant part, 

"No state shall ... deprive any person of life, liberty, or property, without due process of law; 

nor deny to any person within its jurisdiction the equal protection of the laws." U.S. CONST. 

amend. XIV, § 1. 

17 
State v. Johnson, No. 86885-9 

First, Johnson must show "a personal injury fairly traceable to the challenged 

conduct and likely to be redressed by the requested relief." High Tide Seafoods v. 

State, 106 Wn.2d 695, 702, 725 P.2d 411 (1986). Second, Johnson must show that 

his claim falls within the zone of interests protected by the statute or constitutional 

provision at issue. Branson, 152 Wn.2d at 875. Where a party lacks standing for a 

claim, we refrain from reaching the merits of that claim. Org. to Preserve Agric. 

Lands v. Adams County, 128 Wn.2d 869, 896, 913 P.2d 793 (1996). 

The Fourteenth Amendment's equal protection and due process clauses work 

together to restrict a state's ability to imprison indigent defendants for failure to 

pay fines. Bearden v. Georgia, 461 U.S. 660, 665, 103 S. Ct. 2064, 76 L. Ed. 2d 

221 (1983); Tate v. Short, 401 U.S. 395, 396, 91 S. Ct. 668, 28 L. Ed. 2d 130 

(1971); Williams v. Illinois, 399 U.S. 235, 236, 90 S. Ct. 2018, 26 L. Ed. 2d 586 

( 1970). The Supreme Court of the United States has held that the due process and 

equal protection clauses prevent a state from invidiously discriminating against, or 

arbitrarily punishing, indigent defendants for their failure to pay fines they cannot 

pay. Bearden, 461 U.S. at 665. Therefore, a trial court must inquire as to a 

defendant's ability to pay before imprisoning the defendant in order to ensure the 

failure to pay is contumacious-that is, stubbornly disobedient-and not due solely 

to a lack ofmeans.Jd. at 668-69. 

18 
State v. Johnson, No. 86885-9 

Johnson contends that our decision in State v. Blank, 131 Wn.2d 230, 239, 

245, 930 P.2d 1213 (1997), extended Bearden, Tate, and Williams beyond an 

indigent's physical liberty, and that any State sanction imposed for failure to pay a 

fine without a showing that the nonpayment was contumacious is a constitutional 

violation. He therefore contends the suspension of his license for nonpayment, 

which apparently occurred without inquiry into his ability to pay, was a 

constitutional violation. If he is indigent and correctly reading Blank, such a 

constitutional violation would satisfy both the injury-in-fact and the zone of 

interests standing tests. See 1 LAURENCE H. TRIBE, AMERICAN CONSTITUTIONAL 

LAW 446 (3d ed. 2000). 

However, a constitutional violation under Blank occurs only where the State 

sanctions an indigent individual without demonstrating contumacious failure to 

pay. Tate, 401 U.S. at 400 ("We emphasize that our holding today does not suggest 

any constitutional infirmity in imprisonment of a defendant with the means to pay 

a fine who refuses or neglects to do so."); People v. Lewis, 19 Cal. App. 3d 1019, 

97 Cal. Rptr. 419, 421 (Dist. Ct. App. 1971). If Johnson is not indigent within the 

meaning of Bearden and Blank-constitutionally indigent-then no constitutional 

violation has occurred and Johnson lacks standing because he has not suffered an 

InJury. 

19 
State v. Johnson, No. 86885-9 

No precise definition of "constitutional indigence exists." In Williams, the 

Supreme Court spoke of indigence as meaning "without funds." 399 U.S. at 242. 

Nonetheless, courts have recognized that constitutional indigence cannot mean 

absolute destitution. Lewis, 97 Cal. Rptr. at 421. At the same time, a constitutional 

distinction exists between poverty and indigence, and constitutional protection 

attaches only to indigence. See, e.g., Fuller v. Oregon, 417 U.S. 40, 53, 94 S. Ct. 

2116, 40 L. Ed. 2d 642 (1974).4 Bearden essentially mandates that we examine the 

totality of the defendant's financial circumstances to determine whether he or she 

is constitutionally indigent in the face of a particular fine. 461 U.S. at 661-62, 666 

n.8 ("The more appropriate question is whether consideration of a defendant's 

financial background in setting or resetting a sentence is so arbitrary or unfair as to 

be a denial of due process."). 

At least one court has stated that whatever the definition of "constitutional 

indigence," those claiming indigence in the face of traffic fines cannot satisfy the 

definition. "In traffic cases, it is difficult to find an inability to pay when a 

defendant owns an automobile and seemingly has money to buy gasoline or has the 

ability to borrow." State ex rel. Pedersen v. Blessinger, 56 Wis. 2d 286, 295, 201 

4 We live in a society where the distribution of legal assistance, like the 

distribution of all goods and services, is generally regulated by the dynamics of 

private enterprise. A defendant in a criminal case who is just above the line 

separating the indigent from the nonindigent must borrow money, sell off his 

meager assets, or call upon his family or friends in order to hire a lawyer. 

Fuller, 417 U.S. at 53. 

20 
State v. Johnson, No. 86885-9 

N.W.2d 778 (1972). We find no need to make such a categorical statement here 

because we find Johnson's assets leave him unable to claim he is constitutionally 

indigent. 

Ownership of, or equity in, property indicates that a defendant is not 

constitutionally indigent and that his or her failure to pay a fine is contumacious. 

See, e.g., Bearden, 461 U.S. 662 (Bearden was indigent because he lacked assets); 

Lewis, 97 Cal. Rptr. at 421 (making ownership of tangible or intangible property 

one measure of the defendant's ability to pay); People v. McArdle, 55 N.Y.2d 639, 

430 N.E.2d 1309, 1310, 446 N.Y.S.2d 256 (1981) ("There is no constitutional 

infirmity in defendant's imprisonment for failure to pay the fine, for her equity in 

the property establishes that she has the means to pay it though she has so far 

refused to do so."); State v. Williams, 562 So. 2d 965, 969 (La. Ct. App. 1990) 

("[T]here is evidence in the record that the defendant owns immovable property in 

Breaux Bridge, La. We find the record does not support defendant's claim of 

indigency."). Property ownership allows the defendant to "borrow money or 

otherwise legally acquire resources in order to pay his court-ordered financial 

obligation" to pay his or her debt to society. State v. Bowers, 64 Wn. App. 227, 

231-32, 823 p .2d 1171 (1992). 

While Johnson claims standing based on his statutory indigence, his 

statutory indigence does not answer the question of whether he is constitutionally 

21 
State v. Johnson, No. 86885-9 

indigent within the meaning of Bearden and Blank. See In re Smith, 323 F. Supp. 

1082, 1091 (D. Colo. 1971) (noting that statutory indigence is different from 

constitutional indigence). The trial record shows that Johnson is not. During an 

exchange with the district court, Johnson acknowledged he owned both tangible 

and intangible property. Lewis, 19 Cal. Rptr. at 422. He stated that he owned, 

among other things (such as his car), his home, free of any liens. He stated that he 

valued the property at $300,000. He also acknowledged possessing a $3 million 

judgment against his neighbor. We agree with Johnson that under the totality of the 

circumstances, it is unreasonable to consider the $3 million judgment as an asset 

given the unlikelihood that he would ever collect any part of it. However, his 

equity in his home would have allowed Johnson to "borrow or otherwise legally 

acquire resources" necessary to pay the $260 fine. Bowers, 64 Wn. App. at 231-32. 

Considering the totality of the circumstances, we hold that Johnson was not 

constitutionally indigent. While we do not question that the State may not punish 

an indigent defendant for the fact of his or her indigence, these constitutional 

considerations protect only the constitutionally indigent. Johnson had substantial 

assets in comparison to the $260 fine the district court ordered him to pay. 

Requiring payment of the fine may have imposed a hardship on him, but not such a 

hardship that the constitution forbids it. Lewis, 19 Cal. Rptr. at 422 (the 

constitution does not require the trial court to allow a defendant the same standard 

22 
State v. Johnson, No. 86885-9 

of living that he had become accustomed). Johnson is not constitutionally indigent 

and lacks standing for his claim. We decline to reach it. 

C. The district court improperly determined that Johnson was not entitled to 

appointed counsel 

Finally, Johnson argues his constitutional right to counsel was violated 

because the district court refused to appoint counsel for his appeal. The right to 

counsel requires courts to appoint counsel for indigent defendants for criminal 

trials as well as for appeals of right. Gideon v. Wainwright, 372 U.S. 335, 83 S. Ct. 

792, 9 L. Ed. 2d 799 (1963); Douglas v. California, 372 U.S. 353, 83 S. Ct. 814, 9 

L. Ed. 2d 811 (1963). There is no constitutional right to appointed counsel for 

discretionary appeals. Ross v. Moffitt, 417 U.S. 600, 94 S. Ct. 2437, 41 L. Ed. 2d 

341 (1974). 

Washington State has, however, expanded by statute the right to appointed 

appellate counsel beyond the minimum required by the United States Constitution. 

A defendant defined as statutorily indigent may receive appointed counsel for 

criminal trials and appointed appellate counsel under certain circumstances, such 

as when an appellate court accepts a motion for discretionary review, as happened 

here. RCW 10.73.150(6). A person may avail himself or herself of this statutory 

right to appointed appellate counsel if he or she is (1) indigent or (2) indigent and 

able to contribute. RCW 10.73.150. 

23 
State v. Johnson, No. 86885-9 

RCW 10.101.010(3) defines a person as '"[i]ndigent"' for the purposes of 

receiving appointed counsel if he or she satisfies at least one of four disjunctive 

criteria at any stage of a legal proceeding. Receipt of food stamps satisfies one of 

these criteria; earning less than 125 percent of the federal poverty level in income 

satisfies another. RCW 10.101.010(3)(a), (c). 

By the plain terms ofRCW 10.101.010(3), Johnson was statutorily indigent. 

Johnson satisfied two of the criteria for statutory indigence under RCW 

10.101.010(3)-there is no dispute that he received food stamps and that he earned 

less than 125 percent of the federal poverty level. Either was sufficient to require 

the district court to find him indigent within the meaning of Washington's 

appointed counsel statute. State v. Hecht, 173 Wn.2d 92, 94-95, 264 P.3d 801 

(2011). The district-court-erred when it found Johnson not indigent. 

However, the district court appears to have determined that Johnson was 

indigent and able to contribute. A person is '"[i]ndigent and able to contribute"' if 

he or she is "unable to pay the anticipated cost of counsel for the matter before the 

court because his or her available funds are less than the anticipated cost of counsel 

but sufficient for the person to pay a portion of that cost." RCW 10.101.010(4). 

The district court denied Johnson status as an indigent after Johnson admitted to 

owning a house free of liens. Equity in real estate makes up part of a person's 

available funds. RCW 10.101.010(2). To the extent that his equity in his home 

24 
State v. Johnson, No. 86885-9 

enabled Johnson to pay for some of the costs of his defense, it makes him indigent 

and able to contribute. RCW 10.101.010(4). 

Johnson challenges the district court's ability to inquire as to his indigence at 

all, claiming it had already determined he was indigent. Johnson cites RCW 

1 0.1 01. 020(3 ), which requires the trial court to determine his indigence "upon the 

defendant's initial contact with the court, or at the earliest time circumstances 

permit," and claims that this provision does not allow the trial court to reexamine 

an order of indigency. However, RCW 10.101.020(3) merely requires the trial 

court to make an initial determination of indigency; it does not preclude the court 

from later reevaluating its initial determination. Indeed, both statute and court rule 

provide the court with the implicit or explicit authority to perform this 

reevaluation. RAP 15 .2(b) provides, "The determination [of indigency] shall be 

made in written findings after a hearing, if circumstances warrant, or by 

reevaluating any order of indigency previously entered by the trial court"; and 

RCW 1 0.10 l. 020( 4) provides, "If the court subsequently determines that the 

person receiving services is ineligible," then the court should terminate the 

appointment of counsel. The district court had the power to inquire of Johnson's 

financial status to evaluate if the initial determination of indigency remained 

appropriate later in the proceedings. 

25 
State v. Johnson, No. 86885-9 

Johnson also argues the district court deprived him of due process when it 

reconsidered his indigent status, contending he had no "meaningful notice or 

opportunity to be heard." Pet'r's Opening Br. at 43. Johnson does not elaborate on 

this sentence at all. Where a petitioner makes a due process challenge, "' [N]aked 

castings into the constitutional seas are not sufficient to command judicial 

consideration and discussion."' State v. Blilie, 132 Wn.2d 484, 493 n.2, 939 P.2d 

691 (1997) (alteration in original) (internal quotation marks omitted) (quoting In re 

Rosier, 105 Wn.2d 606, 616, 717 P.2d 1353 (1986)). Johnson's lack of argument 

waives consideration of his due process argument. 

We remand to the district court for clarification as to whether Johnson is 

indigent or indigent and able to contribute. If the district court determines that 

Johnson was indigent and able to contribute, it must enter an order determining the 

portions of Johnson's defense for which he must pay. See 1-lecht, 173 Wn.2d at 95, 

96; RAP 15 .4. 

IV. CONCLUSION 

We reject Johnson's argument that the State failed to prove that his license 

suspension occurred for one of the reasons listed in former RCW 

46.20.342(1 )( c )(iv). The plain meaning of the statute contemplates a DWLS 3rd 

charge where the underlying suspension occurs for failure to pay a traffic fine. We 

reject Johnson's contention that he is constitutionally indigent, and therefore 

26 
State v. Johnson, No. 86885-9 

decline to reach the merits of his constitutional challenge to the suspension of his 

license. 

We do, however, agree that Johnson is statutorily indigent because he 

receives food stamps and his income is less than 125 percent of the federal poverty 

level. The district court erred in finding otherwise. We remand to the district court 

to determine whether Johnson is indigent or indigent and able to contribute, and 

direct it to enter the appropriate order. 

27 
State v. Johnson, No. 86885-9 

WE CONCUR: 

( 

28 
State v. Johnson (Stephen Chriss) 

No. 86885-9 

WIGGINS, J. (dissenting)-! agree with the majority's holdings that (1) 

petitioner Stephen Chriss Johnson is statutorily indigent, but not constitutionally 

indigent; (2) Johnson lacks standing to challenge the constitutionally of his license 

suspension; and (3) the case should be remanded to decide whether he should bear 

any or all costs and attorney fees for his appeal. But, I respectfully disagree with the 

finding that Johnson was guilty of driving with license suspended in the third degree 

(OWLS 3d) and, accordingly, must dissent. 

To place this case in context, in 1979, the legislature decriminalized moving 

traffic violations, making them civil infractions. LAWS OF 1979, 1st Ex. Sess., ch. 

136. Accordingly, "[a]n order entered after the receipt of a response which does not 

contest the determination, or after it has been established at a hearing that the 

infraction was committed, or after a hearing for the purpose of explaining mitigating 

circumstances is civil in nature." RCW 46.63.120(1 ). In other words, an order 

determining there has been an infraction is a civil order. 

As the majority explains, the legislature has decided to criminalize certain 

aspects of traffic infractions. Former RCW 46.20.342(1) (2008) makes it "unlawful 

for any person to drive a motor vehicle in this state while that person is in a 

suspended or revoked status or when his or her privilege to drive is suspended or 

revoked in this or any other state." OWLS 1st, 2d, and 3d each arise under very 

specific conditions. Former RCW 46.20.342(1 )(a), (b), (c). OWLS 3d is committed 

under circumstances defined in seven subsections. Former RCW 46.20.342(1 )(c)(i)-

1 
State v. Johnson (Stephen Chriss) 

Wiggins, J., dissenting 

(vii) (2008). Johnson was convicted under section .342(1 )(c)(iv), which defines 

OWLS 3d to include driving with license suspended or revoked because 

the person has failed to respond to a notice of traffic infraction, failed to 

appear at a requested hearing, violated a written promise to appear in 

court, or has failed to comply with the terms of a notice of traffic 

infraction or citation, as provided in [former] RCW 46.20.289 

[(2005)] .... 

To properly understand this statute, we look for its plain meaning, "discerned from all 

that the Legislature has said in the statute and related statutes which disclose 

legislative intent about the provision in question." Oep't of Ecology v. Campbell & 

Gwinn, LLC, 146 Wn.2d 1, 11, 43 P.3d 4 (2002). 

Johnson is not guilty of the first prong of former RCW 46.20.342(1 )(c)(iv) 

because he did not "fail[ ] to respond to a notice of traffic infraction .... " The 

legislature has defined what it means to fail to respond to a notice of infraction: "A 

notice of traffic infraction represents a determination that an infraction has been 

committed. The determination will be final unless contested as provided in this 

chapter." RCW 46.63.060(1 ). The notice must conform to the form prescribed by 

this court and must include "[a] statement of the options provided in this chapter for 

responding to the notice and the procedures necessary to exercise these 

t

. " op 1ons .... RCW 46.63.060(2)(e). A cited person may respond in one of three 

ways: 

o The cited person may respond to the court named on the notice of 

infraction that it is not contested and pay the fine stated on the citation. 

RCW 46.63.070(2). 

2 
State v. Johnson (Stephen Chriss) 

Wiggins, J., dissenting 

o The cited person may contest the infraction by notifying the court and 

requesting a hearing. /d. at .070(3). 

o The cited person may notify the court of a request for a hearing to 

present mitigating circumstances. /d. at .070(4). 

These are the only three permissible responses to the notice of infraction. 

The notice of infraction to Johnson clearly listed these three options. Ex. 2. 

Johnson chose the second option and requested a hearing to contest the infraction. 

He is not guilty under the first prong. 

Nor is Johnson guilty of the second prong of former RCW 46.20.342(1 )(c)(iv) 

because he did not "fail[ ] to appear at a requested hearing " Rather, he 

appeared at the hearing. 

Nor is Johnson guilty of the third prong of former RCW 46.20.342(1 )(c)(iv) 

because he did not "violate[ ] a written promise to appear in court .... " He 

indisputably appeared in court. 

Failing to find a violation of any of these three prongs, the majority seizes 

upon the fourth prong of former RCW 46.20.342(1 )(c)(iv), concluding that Johnson 

"failed to comply with the terms of a notice of traffic infraction or citation as provided 

in [former] RCW 46.20.289 .... " The majority writes, "[l]n failing to pay the fine 

imposed when the infraction trial court rejected Johnson's challenge, Johnson failed 

to comply with the notice of infraction." Majority at 7. I respectfully disagree. There 

is no "term" on the notice of infraction requiring Johnson to pay the fine imposed by 

the judge. The only "term" on the notice that refers to fine payment is the option to 

3 
State v. Johnson (Stephen Chriss) 

Wiggins, J., dissenting 

simply pay the fine on the citation and avoid any court appearance as set forth in 

RCW 46.63.070(2). But Johnson chose the option of appearing and contesting the 

infraction, so the option of avoiding the hearing by paying the fine does not apply to 

him. 

The notice of infraction includes a section in which the district court circled 

somewhat cryptic abbreviations and wrote that the penalty is $260. Ex. 2. This 

section is labeled "Abstract of Judgment." It is not an order that Johnson pay the 

money. Moreover, exhibit 2 is specifically labeled "Court Copy." In short, Johnson 

did not fail to comply with any term of the infraction. 

The majority concludes that Johnson must have violated a term of the 

infraction, arriving at its conclusion by stringing an additional statute to the tail of 

former RCW 46.20.342(1 )(c)(iv) and stringing yet three more statutes to the second 

statute. Majority at 6-10. The majority proceeds in several steps. First, the majority 

observes that after listing the four prongs for finding OWLS 3d under former RCW 

46.20.342(1 )(c)(iv), the subsection concludes with the phrase "as provided in RCW 

46.20.289": 

the person has failed to respond to a notice of traffic infraction, failed to 

appear at a requested hearing, violated a written promise to appear in 

court, or has failed to comply with the terms of a notice of traffic 

infraction or citation, as provided in [former] RCW 46.20.289 .... 

(Emphasis added.) Second, the majority reasons that this incorporation or crossreference clarifies and adds meaning to the four prongs under section .342(1 )(c)(iv). 

Majority at 8. 

4 
State v. Johnson (Stephen Chriss) 

Wiggins, J., dissenting 

Third, the majority observes that former RCW 46.20.289 cites to three 

additional statutes: 

"[DOL] shall suspend all driving privileges of a person when the 

department receives notice from a court under [former] RCW 

46.63.070(6) [(2006)], [former] 46.63.11 0(6) [(2007)], or [former] 

46.64.025 [(2006)] that the person has failed to respond to a notice of 

traffic infraction, failed to appear at a requested hearing, violated a 

written promise to appear in court, or has failed to comply with the 

terms of a notice of traffic infraction or citation, other than for a 

standing, stopping, or parking violation, provided that the traffic 

infraction or traffic offense is committed on or after July 1, 2005." 

Majority at 9 (quoting former RCW 46.20.289). Fourth, the majority reasons that 

each of the three statutes referenced in former RCW 46.20.289 defines one or two 

of the four prongs in former RCW 46.20.342(1 )(c)(iv)-the statute referenced at the 

outset. Majority at 9-10. 

This serial incorporation is obscure, to say the least. Each of these statutes 

governs a different aspect of the regulation of driving privileges. Former RCW 

46.63.070(6), 46.63.11 0(6), and 46.64.025 tell the court to notify Department of 

Licensing (DOL) in very specific situations. Former RCW 46.20.289 tells DOL to 

suspend driving privileges upon notification. Former RCW 46.20.342(1 )(c)(iv) tells 

the court to convict a person of OWLS 3d for driving with license suspended for 

specific reasons. Nothing in the statutes indicates that the legislature intended that 

they be read serially in this manner. The majority's approach contrasts starkly with 

the specificity with which the legislature regulated driving privileges in these statutes. 

If the legislature had intended that a driver be guilty of OWLS 3d for driving after 

5 
State v. Johnson (Stephen Chriss) 

Wiggins, J., dissenting 

driving privileges were suspended for failure to pay a fine or penalty, surely the 

legislature would have said so. 

Criminal statutes must be construed in the manner in which an ordinary 

citizen would understand their terms. State v. Shipp, 93 Wn.2d 510, 515-16, 610 

P.2d 1322 (1980) (citing Winters v. New York, 333 U.S. 507, 515, 68 S. Ct. 665, 92 

L. Ed. 840 (1948); City of Seattle v. Pullman, 82 Wn.2d 794, 797, 514 P.2d 1059 

(1973)). It strains credulity to imagine that an ordinary citizen would read into former 

RCW 46.20.342(1 )(c)(iv) the double incorporation the majority reads into the 

statutory scheme. 

The majority argues that my interpretation of the statutory scheme renders 

"the legislature's reference to former RCW 46.63.11 0(6) in former RCW 46.20.289 .. 

. either entirely superfluous or utterly nonsensical .... " Majority at 10. Not at all. 

One option for responding to a notice of infraction is to respond that one is enclosing 

a check for the fine shown on the notice. A cited person who checks the appropriate 

box but fails to enclose the check has "responded" to the notice of infraction, but 

they have failed to comply with the terms of the notice. Former RCW 46.63.11 0(6) 

would govern this situation. Accordingly, the reference to former section .11 0(6) is 

neither superfluous or nonsensical. 

The majority offers as a "comparative example" RCW 46.61.520, which 

defines vehicular homicide to include operating a motor vehicle under the influence 

of intoxicating liquor or any drug "'as defined by RCW 46.61.502 . ... "' Majority at 

15 (emphasis added) (quoting RCW 46.61.502). This case would be comparable if 

6 
State v. Johnson (Stephen Chriss) 

Wiggins, J., dissenting 

RCW 46.20.342(1 )(c) provided that a person may be guilty of OWLS 3d by driving 

with a license suspended for failure to comply with the terms of a notice of traffic 

infraction, defined under RCW 46. 63. 11 0(6) as grounds for suspension of the 

person's driver's license or driver's privilege. But of course there is no such 

language in either section .342(1 )(c) or section .11 0(6). 

Even if it were permissible to read into former RCW 46.20.342(1 )(c)(iv) the 

double incorporation of statutes on which the majority relies, the majority's reasoning 

still collapses. The majority reasons: former RCW 46.20.342(1 )(c)(iv) defines OWLS 

3d to include failure "to comply with the terms of a notice of traffic infraction or 

citation, as provided in [former] RCW 46.20.289"; [former] RCW 46.20.289 

incorporates [former] RCW 46.63.11 0(6); [former] RCW 46.63.11 0(6)(b) provides 

that the DOL must suspend driving privileges for failure to pay monetary penalties; 

therefore, failure to comply with the terms of a notice of traffic infraction or citation 

must include failure to pay monetary penalties. This logic depends on tying the 

failure to pay monetary penalties back to a term of a notice of traffic infraction. As 

noted earlier in this dissent, the only term in the notice of infraction requiring 

payment of a monetary penalty is one of the three response options: instead of 

contesting the infraction, the driver may send payment to the court for the amount of 

the penalty stated on the notice. Accordingly, even if failure "to comply with the 

terms" includes failure to pay, it can refer only to the option of paying the stated 

penalty instead of going to court to contest the notice. But Johnson cannot be guilty 

7 
State v. Johnson (Stephen Chriss) 

Wiggins, J., dissenting 

of violating this alternative because he complied instead with the alternative of 

appearing in court to contest the violation. 

Former RCW 46.20.342(1 )(c)(iv) defines a crime. We cannot require citizens 

to puzzle out the meaning of obscure language in a statute and to follow a trail of 

statutes to pile one unclear reference upon another to arrive at the definition of the 

crime. Johnson complied with the terms of the statutory language. I cannot find that 

the crime is defined by cross-references directed at the DOL. 

8 
State v. Johnson (Stephen Chriss) 

Wiggins, J., dissenting 

Accordingly, I respectfully dissent. 

9