Opinion ID: 550363
Heading Depth: 2
Heading Rank: 2

Heading: The Mixed Nature of Civil Forfeiture Proceedings

Text: 11 Civil forfeiture actions constitute a hybrid procedure of mixed civil and criminal law elements. Sometimes referred to as quasi-criminal actions, civil forfeitures are in rem proceedings in which the guilt at issue is the guilt of the property seized. One 1958 Plymouth Sedan v. Pennsylvania, 380 U.S. 693, 700, 85 S.Ct. 1246, 1250, 14 L.Ed.2d 170 (1965) ([A] forfeiture proceeding is quasi-criminal in character. Its object, like a criminal proceeding, is to penalize for the commission of an offense against the law.). See also Discussion of Comments, Final Rule Concerning Expedited Forfeiture Proceedings for Certain Property, 54 Fed.Reg. 37605, 37606 (1989) (to be codified at 21 C.F.R. Secs. 1316.90-1316.99). 12 In drug-related forfeitures, the guilt issue to be determined is whether the seized property is connected with illicit drug activity. The owner-claimant is neither defendant nor plaintiff, but an intervenor who seeks to defend his or her right to the property against the government's claim. Indeed, the guilt or innocence of the owner-claimant is largely irrelevant. See Calero-Toledo v. Pearson Yacht Leasing Co., 416 U.S. 663, 683, 94 S.Ct. 2080, 2092, 40 L.Ed.2d 452 (1974). The owner-claimant thus stands in an essentially civil litigation position in the civil forfeiture proceeding. See United States v. Santoro, 866 F.2d 1538, 1543-44 (4th Cir.1989) (forfeiture statute 21 U.S.C. Sec. 881 is a civil, not a criminal, provision). 13 Because of the use of civil forfeiture statutes to aid in the enforcement of criminal laws, see Calero-Toledo, 416 U.S. at 686-87, 94 S.Ct. at 2093-94, courts have developed limited constitutional criminal law protections for owner-claimants. One 1958 Plymouth Sedan, 380 U.S. at 702, 85 S.Ct. at 1251 (extending the protection of the Fourth Amendment exclusionary rule to civil forfeitures); Boyd v. United States, 116 U.S. 616, 6 S.Ct. 524, 29 L.Ed. 746 (1886) (applying Fifth Amendment protection against self-incrimination to civil forfeiture proceedings). But many traditional criminal law guarantees do not protect civil forfeiture owner-claimants. Forfeiture statutes are civil for the purposes of the double jeopardy clause, One Lot Emerald Cut Stones & One Ring v. United States, 409 U.S. 232, 235-36, 93 S.Ct. 489, 492, 34 L.Ed.2d 438 (1972) (per curiam), forfeiture statutes are not criminal enough to prevent the claimant from carrying the burden of proof, United States v. One 1970 Pontiac GTO, 2-Door Hardtop, 529 F.2d 65, 66 (9th Cir.1976), and the Federal Rules of Criminal Procedure do not, by their express terms, apply to civil forfeitures. Fed.R.Crim.P. 54(b)(5). 14 Defenses to a forfeiture action are similarly limited, and stand in stark contrast to those available to a criminal defendant. The government need only show probable cause that the property seized was used or intended for use in violation of federal drug laws. United States v. One 1977 Mercedes Benz, 708 F.2d 444, 447 (9th Cir.1983), cert. denied, 464 U.S. 1071, 104 S.Ct. 981, 79 L.Ed.2d 217 (1984). The burden of proof then shifts to the defendant (a shift strictly prohibited in criminal proceedings) to show that no probable cause existed, either because no violation of the drug laws was involved, or because the vehicle was not used for the purpose alleged. At that point, [w]hen an owner of a vessel introduces no evidence to prove that the vessel was not used for an illegal purpose, the government may obtain forfeiture solely upon the basis of its showing of probable cause. United States v. One 56-Foot Motor Yacht Named the Tahuna, 702 F.2d 1276, 1287 (9th Cir.1983). 15 Additionally, by contrast with the constitutional requirements applicable to most traditional civil cases, in a civil forfeiture proceeding, due process does not require an immediate post-deprivation hearing, at least where judicial review of the forfeiture is available within a reasonable time. United States v. One 1971 BMW 4-Door Sedan, 652 F.2d 817, 820-21 (9th Cir.1981). Civil due process in forfeiture cases requires little more than forfeiture proceedings be commenced without unreasonable delay. Id. 16 This comparative absence of procedural safeguards in forfeiture actions has attracted increasingly critical attention in recent years as government officials have stepped up the use of forfeiture as a means of curbing drug trafficking and the use of narcotics. Note, Constitutional Rights and Civil Forfeiture Actions, 88 Colum.L.Rev. 390, 391 (1988). While [w]e are not unsympathetic to the government's strong desire to eradicate drug trafficking ... [and] recognize that illegal drugs pose a tremendous threat to the integrity of our system of government, we note along with the Eleventh Circuit that denial of individual rights by arbitrary and capricious government conduct also poses a threat to our government's integrity. United States v. $38,000.00 in U.S. Currency, 816 F.2d 1538, 1548-49 (11th Cir.1987). 17 We must, therefore, clearly distinguish between the criminal and civil aspects of civil forfeiture actions in order to ensure that individual owner-claimants' rights are respected. Viewed in this manner, Glenn's position that the government improperly pursued the forfeiture of his automobile breaks down into two separate arguments. First, there is the argument that the government vindictively pursued the forfeiture action against his Mercedes because the criminal case against him was dismissed by the First Circuit. This argument relates to the criminal aspect of the forfeiture proceeding. Second, there is the argument that the government acted arbitrarily and capriciously in its decision to pursue the forfeiture action against Glenn's Mercedes. This argument relates to the civil aspect of forfeiture proceedings.