Opinion ID: 2184643
Heading Depth: 1
Heading Rank: 4

Heading: Commonwealth v. Sims, 2000-SC-1076 & 961-DG

Text: This appeal and cross-appeal are from an opinion of the Court of Appeals reversing a ruling of the Jefferson Circuit Court which determined that Sims was a high risk sex offender pursuant to the Sex Offender Registration Act, KRS 17.500 et seq. (1998 Kentucky Acts). In 1978, Sims pled guilty to one count of first-degree sodomy and was sentenced to 20 years in prison. Prior to his release, a risk determination hearing was held and the circuit judge determined that Sims was a high risk offender. The Court of Appeals reversed the ruling because it believed the statute violated the separation of powers doctrine and was an unconstitutional reopening of a final judgment. This Court granted discretionary review. The Commonwealth argues that the statutory system does not constitute a reopening of the original judgment and conviction. It contends that the legislature has the express constitutional authority to regulate the jurisdiction and venue of circuit courts. The Commonwealth claims that the legislature has done this in the past in declaratory judgment statutes, habeas corpus statutes and shock probation statutes. It claims that the system actually establishes jurisdiction for a separate civil proceeding. The Commonwealth also maintains that the courts have constitutional authority to review sex offender classifications and conduct hearings and to do so does not constitute an impermissible separation of powers violation. Sims responds that the Court of Appeals properly declared the 1998 statute invalid because the legislature improperly ordered circuit judges to reopen closed criminal cases in order to conduct assessment hearings. He argues that the legislature did not intend that the 1998 version of KRS 17.500 et seq. apply to him. He complains that the application of the 1998 amendments of the Registration and Notification Statutes violate his constitutional protection against retroactive punishment. He asserts that the new punishment of Internet publicity under the 2000 amendments to the Sex Offender Registration Act cannot be imposed on him and that this Court must order a removal of all information about him from the state police Web site.
We have previously stated in this opinion that there is no violation of the separation of powers principles. We believe some additional comments are necessary to respond to the particular arguments raised by Sims. The Registration and Notification Statutes are occasioned by the criminal conviction and cannot occur without it, but it does not affect the criminal proceeding. It could be compared to a PFO proceeding during a criminal trial which cannot occur without the presence of a previous criminal conviction. A risk assessment cannot arise without a prior sex offense conviction. Similar to the PFO proceeding, the offender does not receive any additional punishment for the original criminal conviction. The previous conviction is certainly not reopened for further proceedings. Commonwealth v. Griffin, Ky., 942 S.W.2d 289 (1997), provides that a court may retain jurisdiction over a particular case by operation of rule or statute and also by operation of its own judgment provided it is not precluded by any statute from doing so. Here, jurisdiction over the convicted sex offender regarding classification and registration was imposed by the statutes. The circuit court did not exceed its jurisdiction in classifying Sims. See Collie v. State, 710 So.2d 1000 (Fla.Dist.Ct.App.1998). The argument that because this action carries the same number from the indictment of 22 years ago, it must signify that the case has been reopened is totally without merit. The administrative decision by the clerical division of the court system to place the number from the original conviction on the subsequent paper work does not amount to a reopening of the original judgment of conviction. The number a court system uses to track its cases has nothing to do with the substance of the case or the underlying statute. We find the Court of Appeals to be in error when it determined that the statutes required a reopening of the criminal judgment.
Sims claims that the assignment of the duty to conduct a risk assessment hearing to the circuit court is a violation of the separation of powers doctrine because it places a burden on the circuit court. We cannot agree. A hearing to review the classification of risk as recommended by the certified provider pursuant to the statute is not a delegation of a purely legislative or executive responsibility to the court system. It does not unreasonably interfere with the function of the judiciary and is not a violation of the separation of powers principles. Commonwealth v. Raines, Ky., 847 S.W.2d 724 (1993), overruled on other grounds in Commonwealth v. Howard, Ky., 969 S.W.2d 700 (1998), recognizes that a statute may confer on the courts the duty to administer certain types of laws but not to legislate. Raines, supra , a case involving the revocation of drivers licenses found that nothing in the constitution prevented the administration of traffic laws including the suspension of licenses from being lawfully delegated to the courts and that such a statute did not impose a purely executive function on the judiciary. The same is true in this situation, thus the statute here does not constitute a separation of powers violation. Cf. Mullins v. Commonwealth, Ky., 956 S.W.2d 210 (1997). The argument by Sims that the hearing should be conducted by the parole board is unconvincing. It is within the power of the legislature to determine what unit of government is best suited to perform certain civil responsibilities. Here, the legislature determined that the sentencing courts were most familiar with the facts surrounding the offender, and therefore, would be most capable of handling the risk determination efficiently. The assignment of this responsibility to the circuit courts is a legitimate policy decision by the legislature and does not violate the separation of powers doctrine. The circuit courts have the constitutional authority to review sex offender classifications and to conduct hearings in connection therewith. Such action does not constitute an impermissible separation of powers violation. The Arizona Court of Appeals, where the separation of powers doctrine approach is similar to that of Kentucky, has found that its sexually violent persons act did not violate separation of powers by providing that rules of civil procedure and evidence would apply in the proceedings. The Arizona Court concluded that: The critical question is whether the exercise of power usurps the power of another branch of government. Such usurpation was not found in Arizona and there is no usurpation here. See Martin v. Reinstein, 195 Ariz. 293, 987 P.2d 779 (App.1999). In the cross-appeal by Sims, in addition to the challenge to the constitutionality of the statutes, he raises other lengthy arguments in regard to constitutional Sections 1, 26, 27, 28, 47 and 51. None of these arguments are convincing, but we will comment on some of them. We have previously held in this Opinion that the statutes in question were not intended and are not any form of punishment. Section 51 is not violated. The legislation does not relate to more than one subject and is not misleading. Registration and notification are not punishments for a previous sex crime. They are remedial measures, not punitive, and do not constitute punishment. See Kansas v. Hendricks, 521 U.S. 346, 117 S.Ct. 2072, 138 L.Ed.2d 501 (1997). The arguments by Sims regarding his right to privacy have no foundation. The limitation on the right to privacy was expressed by a delegate to the 1890 constitutional convention when he stated, My rights end where another gentleman's rights commence. Const. Debates p. 597. The laws enacted here are for the direct protection of society. See Commonwealth v. Campbell, 133 Ky. 50, 117 S.W. 383 (1909). The contention that the statutes violate section 47 of the constitution is unpersuasive. Chapter 401 of the 2000 version of the acts does not violate the constitution because it is not a taxation or revenue bill. The purpose of the legislation is to promote public safety. The fact that the latest version of the statute was necessary to prevent Kentucky from losing federal funding does not change the statute into one of a revenue raising type. Yeoman v. Health Policy Board, Ky., 983 S.W.2d 459 (1998), indicates that if there is a revenue aspect to a bill that is incidental to its primary purpose, the statute survives scrutiny under Section 47. The funds received by Kentucky from the federal government are not revenue raised by means of local or state taxation. The application of the statutes in question will not result in ex post facto, double jeopardy or bill of attainder violations. The Kentucky legislation establishes a remedial and regulatory system regarding registration and notification of convicted sex offenders similar to all the other states in the union and the federal government. From any aspect, the intended purpose of this legislation is to promote public safety. The title of the bill is An Act concerning criminal justice matters and in practice, the statutes relate to criminal justice matters because they apply to individuals previously convicted of sexual offenses. It should be noted that the law is not styled An Act Relating to Crimes and Punishments.
We reject the claims that the statutes are unconstitutional because they violate the principles of double jeopardy. A careful review of the statutes indicates that the registration laws do not expose any individual to double jeopardy when applied to a criminal who has already been convicted of committing a sex crime. The statutes have a remedial purpose and are not excessive when compared to that purpose. The statutes protect the public and aid law enforcement in monitoring sex offenders. The fact that the statutes are intended to deter recidivism does not warrant declaring them unconstitutional as a violation of double jeopardy principles. The dissemination of information by whatever means has not been considered a form of punishment. Cf. Cutshall v. Sundquist, 193 F.3d 466 (6th Cir.1999). The restrictions imposed on sex offenders are not comparable in any way to any form of incarceration. The statutes serve a regulatory purpose. None of the elements of the registration act run afoul of the double jeopardy analysis provided by this Court in Hourigan v. Commonwealth, Ky., 962 S.W.2d 860 (1998), or the United States Supreme Court in Hudson v. United States, 522 U.S. 93, 118 S.Ct. 488, 139 L.Ed.2d 450 (1997). They do not involve a second prosecution for the same offense after acquittal. They are not a second prosecution for the same offense after conviction, and multiple punishments for the same offense are not involved. It has been held that Megan's Law, which is a common name for the Registration and Notification Act, does not adjudicate guilt nor does it inflict punishment and therefore cannot constitute a bill of attainder. Roe v. Farwell, 999 F.Supp. 174 (D.Mass.1998); Patterson v. State, 985 P.2d 1007 (Alaska Ct.App.1999); Commonwealth v. Mountain, supra , discussing Commonwealth v. Gaffney, 702 A.2d 565 (Pa.Super.Ct.1997); Doe. We agree.