Opinion ID: 2627591
Heading Depth: 1
Heading Rank: 4

Heading: Conflicting Statutes

Text: In arguing that district magistrate judges do not have jurisdiction to conduct felony arraignments, Valladarez relies on K.S.A. 22-2202(3), which defines arraignment to mean the formal act of calling the defendant before a court having jurisdiction to impose sentence for the offense charged, informing the defendant of the offense with which the defendant is charged, and asking the defendant whether the defendant is guilty or not guilty. (Emphasis added.) As Valladarez notes, under this statute a district magistrate judge lacks authority to arraign a defendant on felony charges because a district magistrate judge does not have jurisdiction to impose a felony sentence. See K.S.A. 20-302b(a) (limiting district magistrate judge's criminal trial jurisdiction to traffic and tobacco infractions and misdemeanor charges). Valladarez suggests that this limitation is consistent with Congress' restriction of a federal magistrate judge's arraignment jurisdiction to cases where a defendant consents to the magistrate's accepting a plea. See, e.g., United States v. Montano, 472 F.3d 1202, 1204 (10th Cir.2007) (A [federal] magistrate judge has jurisdiction to conduct a plea hearing and subsequently accept a defendant's plea where the defendant consents.); 2 Crim. Prac. Manual § 46:10, p. 46-9 (West 2009) (federal district magistrate judges are permitted to accept guilty pleas if defendant expressly consents); see also Gomez v. United States, 490 U.S. 858, 873-76, 109 S.Ct. 2237, 104 L.Ed.2d 923 (1989) (additional duties clause of 28 U.S.C. § 636[b][3] does not authorize a federal magistrate judge to conduct jury selection in felony trial without defendant's consent); United States v. Mendez-Lopez, 338 F.3d 1153, 1158-59 (10th Cir. 2003) (defendant's consent to federal magistrate judge's taking of verdict extended to magistrate judge's handling of the deliberating jury unless a need arose to consult the district judge). However, the United States Magistrate Judges Act, 28 U.S.C. §§ 631, 636 (2006), does not apply to proceedings in a state court, and the choices Congress made in determining a federal magistrate judge's jurisdiction do not require the Kansas Legislature to impose similar limitations on Kansas district magistrate judges. Consequently, the federal authorities cited by Valladarez are neither controlling nor persuasive. In addition to these federal authorities, Valladarez relies on three Kansas cases State v. Boone, 218 Kan. 482, 543 P.2d 945 (1975), cert. denied 425 U.S. 915, 96 S.Ct. 1515, 47 L.Ed.2d 767 (1976); State v. Bloomer, 197 Kan. 668, 421 P.2d 58 (1966), cert. denied 387 U.S. 911, 87 S.Ct. 1697, 18 L.Ed.2d 631 (1967); and State v. Talbert, 195 Kan. 149, 402 P.2d 810, cert. denied 382 U.S. 868, 86 S.Ct. 143, 15 L.Ed.2d 107 (1965). In Boone, the court cited Bloomer and Talbert as authorities supporting its holding that [t]he magistrate in a felony case has no jurisdiction to arraign the accused or to accept a plea of guilty of the charge. [Citation omitted.] 218 Kan. at 485, 543 P.2d 945. To further emphasize its point, the Boone court explained that a district magistrate judge's authority to conduct a preliminary hearing did not equate to the authority to conduct an arraignment, stating: [A] magistrate conducting a preliminary examination serves a limited functionto determine whether a crime has been committed and whether there is probable cause to believe that the accused committed it. 218 Kan. at 485, 543 P.2d 945. Furthermore, [t]he object of a preliminary examination is not to determine the guilt or innocence of the accused. The examining magistrate has no power to acquit but only the power to discharge from custody. 218 Kan. at 485, 543 P.2d 945; see also Bloomer, 197 Kan. at 671, 421 P.2d 58 (same); Talbert, 195 Kan. at 152, 402 P.2d 810 (stating that district magistrate judge in felony case `has no jurisdiction to arraign the accused or to accept plea of guilty,' quoting State v. Jordan, 193 Kan. 664, Syl. ¶ 3, 396 P.2d 342 [1964], cert. denied 380 U.S. 920, 85 S.Ct. 917, 13 L.Ed.2d 805 [1965]). What Valladarez' argument ignores is that all three cases Boone, Bloomer, and Talbert predate the Kansas Legislature's 1999 statutory amendments to K.S.A. 20-302b(a) and K.S.A. 22-2902(7), which expanded the jurisdiction of district magistrate judges. See L. 1999, ch. 159, secs. 1, 5. The language added to K.S.A. 20-302b(a) allows a district magistrate judge to hear felony arraignments subject to assignment pursuant to K.S.A. 20-329. K.S.A. 20-329 allows a chief judge of a judicial district to assign cases. This expanded authority was also added to K.S.A. 22-2902(7), a statute relating to preliminary hearings, by providing: The judge of the district court, when conducting the preliminary examination, shall have the discretion to conduct arraignment, subject to assignment pursuant to K.S.A. 20-329 and amendments thereto, at the conclusion of the preliminary examination. The phrase judge of the district court is defined in K.S.A. 20-301a to include both district judges and district magistrate judges; thus, the 1999 amendment to K.S.A. 22-2902(7) grants district magistrate judges jurisdiction to conduct an arraignment at the conclusion of a preliminary hearing, if assigned to do so. The State relies on these amendments to K.S.A. 20-302b(a) and K.S.A. 22-2902(7) to support its argument that the district magistrate judge in this case had jurisdiction to arraign Valladarez. While the State is correct that these amendments support its position, ambiguity arises because the 1999 amendments are in conflict with the statute relied on by Valladarez, K.S.A. 22-2202(3), which limits a district magistrate judge's arraignment jurisdiction to traffic and tobacco infractions and misdemeanor charges. When statutes are in conflict, we often state that `[g]eneral and special statutes should be read together and harmonized whenever possible, but to the extent a conflict between them exists, the special statute will prevail unless it appears the legislature intended to make the general statute controlling.' [Citations omitted.] Pieren-Abbott v. Kansas Dept. of Revenue, 279 Kan. 83, 89, 106 P.3d 492 (2005). In this situation, however, an argument can be made that each provision could be considered the special statuteK.S.A. 22-2202(3) has a very specific definition of arraignment and K.S.A. 20-302b(a) and K.S.A. 20-2902(7) are specific to district magistrate judges' jurisdiction and specifically mention arraignment in that context. Thus, this rule of statutory construction does not resolve the issue. Under other rules of statutory construction, when statutes are ambiguous, courts may look to the historical backgrounds of the enactments, the circumstances attending passage, the purposes to be accomplished, and the effects the statutes may have under the various constructions suggested. In re Adoption of G.L.V., 286 Kan. 1034, 1041, 190 P.3d 245 (2008). Here, the legislative record reveals the 1999 amendments were specifically intended to extend the jurisdiction of district magistrate judges. In hearings on the proposed legislation, the Senate Judiciary Committee was presented with the Report of the Organization of Courts Subcommittee to the Kansas Citizens Justice Initiative, which recommended several changes in the scope of a district magistrate judge's jurisdiction. One recommendation was to authorize district magistrate judges to conduct arraignments, take pleas and to order pre-sentence investigations in felony cases. The report contained an analysis of the proposal, stating: Magistrate judges are authorized to conduct arraignment type proceedings in misdemeanor cases and are generally familiar with the arraignment process. Magistrates are also authorized to conduct preliminary hearings in felony cases but they are not authorized to arraign a felony defendant. Customarily arraignment follows immediately after the preliminary hearing. However, because a magistrate judge cannot arraign, arraignments are often delayed because a district judge may not be readily available. The resulting delay and scheduling problems are exacerbated in multi-county districts where only one or two district judges sit. Minutes, Sen. Judiciary Comm., March 18, 1999, attach. 2-21 to 2-22. Repeated throughout the testimony of other proponents of the legislationthe Board of Indigents' Defense Services, the Kansas District Judges Association, and the Kansas District Magistrates Associationwas the view that allowing district magistrate judges to conduct felony arraignments would add efficiency to the process and should be an available option when a chief judge of a judicial district deems it appropriate. The sole opponent to the legislation, the Kansas County and District Attorneys Association, recognized these potential benefits as well and did not object to magistrate judges conducting arraignments; rather, the Association sought protections against speedy trial problems that might arise if a district magistrate judge did not have authority to immediately place the case on a trial calendar of a district judge. Overall, however, the testimony and legislative history reflects a clear intent to expand district magistrate judges' jurisdiction to cover felony arraignments. In addition, under another rule of statutory construction, it is presumed that the legislature intends to change the law when it enacts an amendment. State v. Gracey, 288 Kan. 252, 260, 200 P.3d 1275 (2009). Considering the combination of this presumption and the legislative history, we hold that K.S.A. 20-302b(a) and K.S.A. 22-2902(7) grant a district magistrate judge jurisdiction to conduct a felony arraignment if the chief judge of the judicial district has assigned the district magistrate judge to do so. We further conclude that the legislature intended for that grant of jurisdiction to control over the conflicting provisions of K.S.A. 22-2202(3), which would have the effect of limiting a district magistrate judge's arraignment jurisdiction to traffic and tobacco infractions and misdemeanor charges. The question remains whether Valladarez is correct that the power to arraign does not allow a district magistrate judge to (1) determine whether there is a sufficient factual basis to support the plea or (2) to adjudge a defendant guilty of felony charges. In asserting the power to arraign does not extend to these functions, Valladarez relies on K.S.A. 22-3205(a), which defines the procedure for an arraignment, stating: Arraignment shall be conducted in open court and shall consist of reading the complaint, information or indictment to the defendant or stating to the defendant the substance of the charge and calling upon the defendant to plead thereto. Valladarez notes that accepting a plea of guilty or no contest requires several additional steps as specified in K.S.A. 22-3210: (a) Before or during trial a plea of guilty or nolo contendere may be accepted when: (1) The defendant or counsel for the defendant enters such plea in open court; and (2) in felony cases the court has informed the defendant of the consequences of the plea, including the specific sentencing guidelines level of any crime committed on or after July 1, 1993, and of the maximum penalty provided by law which may be imposed upon acceptance of such plea; and (3) in felony cases the court has addressed the defendant personally and determined that the plea is made voluntarily with understanding of the nature of the charge and the consequences of the plea; and (4) the court is satisfied that there is a factual basis for the plea. Because these provisions require more than having a defendant state a plea, Valladarez argues the district magistrate judge was required to bind Valladarez over to allow a district court judge to fulfill the procedures required by K.S.A. 22-3210. Valladarez bolsters this argument by referring back to the holdings in Boone, Bloomer, and Talbert and the provisions of K.S.A. 20-302b(a), which grant a district magistrate judge the authority to adjudicate guilt or innocence in misdemeanors but not felonies. He argues that finding a factual basis to support a plea and declaring a defendant guilty upon acceptance of a plea is equivalent to trying the case. In summary, Valladarez explains his argument by stating in his brief that [i]n order for a case to be subject to assignment pursuant to K.S.A. 20-329, a Defendant would have to have entered a plea of not guilty. K.S.A. 20-302b does not allow a Magistrate Judge to hear a plea of guilty or no contest. Clearly, no statute explicitly limits the district magistrate judge to hearing only a plea of not guilty in a felony case. Moreover, traditionally an arraignment has not been so limited. As this court has stated: `The arraignment in a criminal proceeding is the formal act of calling the defendant before a court having jurisdiction to impose sentence for the offense charged; informing the defendant of the offense charged by reading the complaint, information or indictment or stating to him the substance of the charge; and asking defendant whether he is guilty or not guilty or to otherwise plead as permissible by law. [ State v. Rosine, 233 Kan. 663, Syl. ¶ 3, 664 P.2d 852 (1983)].' (Emphasis added.) State v. Smith, 247 Kan. 455, 458, 799 P.2d 497 (1990). See also K.S.A. 22-2202(3) (defining arraignment as including the step of asking the defendant whether the defendant is guilty or not guilty.). When a defendant is asked whether he or she is guilty or not guilty, if the defendant replies guilty there are serious ramifications. Indeed, as the United States Supreme Court recognized in Boykin v. Alabama, 395 U.S. 238, 242, 89 S.Ct. 1709, 23 L.Ed.2d 274 (1969), [a] plea of guilty is more than a confession which admits that the accused did various acts; it is itself a conviction. Because the plea has the effect of a confession and a waiver of the right to trial, the Court in Boykin held it was necessary to ensure the plea was voluntarily and intelligently made. To assure this due process standard was met, the Court imposed requirements on the States, specifying the federal constitutional rights of the defendant and the information that must be given to and obtained from the defendant. 395 U.S. at 242-44, 89 S.Ct. 1709. K.S.A. 22-3210, which was enacted in 1970 (L. 1970, ch. 129, sec. 22-3210) codified these requirements and defined due process standards to be accorded in Kansas courts. In other words, to properly arraign a defendant who wishes to plead guilty or no contest, the judge conducting an arraignment must comply with these procedures. See State v. Edgar, 281 Kan. 30, 36-37, 127 P.3d 986 (2006). Reflecting these requirements, this court has referred to these due process requirements as a part of the arraignment procedure. See, e.g., State v. Shaw, 259 Kan. 3, 6-11, 910 P.2d 809 (1996) (relating to defendant waiving preliminary hearing and during the arraignment stipulating to a factual basis for the plea); James v. State, 220 Kan. 284, 287, 553 P.2d 345 (1976) (stating that proceedings in this case upon arraignment and the receiving of petitioner's plea of guilty measured up in all respects to the federal standards made applicable to the states by the Boykin decision). As a result, if a district magistrate judge was not able to accord due process when asking a defendant to state a plea of guilty, not guilty, or no contest, the magistrate judge's authority would be meaningless. Such a result would be inconsistent with another rule of statutory construction, the presumption that the legislature does not intend to enact useless or meaningless legislation. In re Adoption of G.L.V., 286 Kan. at 1041, 190 P.3d 245. Alternatively, if the authority was made meaningful to the extent of allowing a defendant to state guilty or no contest but, following Valladarez' suggestion, the district magistrate judge could not determine if the plea was supported by sufficient facts, the defendant would be burdened with the consequences of having confessed guilt in open court without being given due process until a later hearing before a district judge. See K.S.A. 22-3210(d) (good cause required to withdraw plea of guilty or no contest before sentencing). The result would be an unreasonable burden on the rights of a defendant to enter a knowing and voluntary plea. Moreover, the legislative history of the 1999 amendments reflects that the legislature understood and envisioned district magistrate judges accepting felony pleas of guilty or no contest. During the Senate hearings, all of the proponents and opponents of the legislation made statements indicating they understood the proposal to allow district magistrate judges to take a felony plea, and they supported granting that authority. In written testimony, a representative of the Board of Indigents' Defense Services testified: Consideration has been given to magistrate judges' ability to handle guilty pleas if they are offered at arraignment. Some attorneys have raised concerns about magistrates' ability and training to take felony guilty pleas. However, the board believes adequate safeguards are in place to ensure that a defendant's rights are protected when a plea of guilty is taken by a magistrate. Simply put, the board feels that, if a magistrate is deemed qualified to bind a defendant over on a felony charge, that same magistrate should also be deemed qualified to take a felony guilty plea. Minutes, Sen. Judiciary Comm., March 18, 1999, attach. 2-26. Consistent with this expressed intent, the Kansas Legislature took no steps to change the arraignment procedure, to provide that a district magistrate judge could only take some of the steps toward accepting a plea but not all, or to limit a magistrate judge's authority to accept only not guilty pleas. Rather, through the 1999 amendments to K.S.A. 20-302b(a) and K.S.A. 22-2902(7), the legislature intended to grant a district magistrate judge who has been assigned to conduct felony arraignments the jurisdiction to accept a felony plea and to provide due process by complying with K.S.A. 22-3210 when doing so, including determining if there is a sufficient factual basis to support the plea. This determination and the conclusion that a defendant's plea is knowing and voluntary allows a judge of the district court, whether a district judge or district magistrate judge properly assigned, to accept the defendant's plea of guilty or no contest which, as stated by the United States Supreme Court in Boykin, 395 U.S. at 242, 89 S.Ct. 1709, equates with a conviction. Hence, the district magistrate judge in this case had jurisdiction to accept Valladarez' pleas if the district magistrate judge was assigned to do so by the chief judge of the judicial district.