Document: 436 U.S. 340 98 S.Ct. 1834 56 L.Ed.2d 329 UNITED STATES, Petitioner,v.John MAURO and John Fusco. Petitioner, v. Richard Thompson FORD. Nos. 76-1596, 77-52. Argued Feb. 27, 1978. Decided May 23, Syllabus After respondents in No. who at the time were serving state sentences New York, indicted on federal charges United States District Court for Eastern of that court issued writs habeas corpus ad prosequendum directing prison wardens to produce court. Subsequently, following their arraignments, retained custody York City, but after trial dates had been set, they returned prison. Respondents then moved dismissal indictments ground States, by returning them without first trying charges, violated Art. IV(e) Interstate Agreement Detainers (Agreement), which requires an indictment against a prisoner is obtained receiving State ("State" being defined II(a) include States) if he his original place imprisonment tried underlying detainer request was secured. The granted motion, Appeals affirmed. In 77-52, arrested Illinois turned over authorities extradition Massachusetts unrelated respondent requested speedy charges. transferred Massachusetts, officials lodged him with authorities. conviction Southern produced from arraignment before pursuant writ proseque dum. Thereafter, own await trial, subsequently postponed several times. When Government postpone third time, denied right alleging causing be certain privileges Respondent's motion denied, secured presence means prosequendum. At beginning again unsuccessfully grounds, thereafter convicted. On appeal, argued should have dismissed because, inter alia, not within 120 days initial arrival violation IV(c) Agreement. agreed reversed remanded as required V(c), holding utilized bring "written temporary custody" meaning IV(a) filed sending order obtain prisoner. Held : 1. As indicated statute itself well its legislative history, party both State, fact already obtaining prisoners enacted does show Congress could intended join State. Pp. 353-356. 2. A authorities, production criminal thus trigger application Therefore, because 76-1596 never respondents, became applicable so bind provisions, dismissed. 357-361. (a) role functioning secure presence, purposes defendants cases, including custody, are rooted history bear little resemblance typical activates Unlike such district court, may initiative prosecutor or law enforcement officer, and, rather than requiring prisoner's immediate writ, merely puts incarcerated notice wanted another jurisdiction further action necessary 357-359. (b) concerns expressed drafters it demonstrate included definition "detainer" used 359-361. 3. bound when provisions filing obtains prosequendum, hence 77-52 properly 361-365. constitutes reque t Because point policies encourage expeditious disposition subject provide cooperative procedures among member facilitate fully implicated, there no reason give unduly restrictive term custody." Whether presents piece paper labeled "request demanding able prisoner, brought way reduces need prompt detainer. 361-364. failure invoke specific terms motions did result waiver claim IV(c), since record shows persistently given requests sufficient put substance claim. 364-365. 544 F.2d 588, remanded; 550 732, Andrew L. Frey, Washington, D.C., petitioner. Kevin G. Ross, pro hac vice, special leave Court. Mr. Justice WHITE delivered opinion 1 1970 Act, 18 U.S.C. App., pp. 1395-1398 (1976 ed.), joining Columbia parties (Agreement).1 Agreement, has also 46 designed "to orderly . [outstanding prisoner] determination proper status any all detainers based untried indictments, informations, complaints." I. It prescribes demand pending jurisdiction. either case, however, triggered only custodial (sending) (receiving) having prisoner; must file appropriate "request" present cases concern scope States' obligations under particular pose question whether prisoners, considered 2 * A. 3 Mauro Fusco, contempt November 3, 1975.2 men correctional facilities.3 5, 1975, separate prisons where F sco 19, 1975. Fusco arraigned 24, entered pleas guilty. Following arraignment, Metropolitan Correctional Center City. 4 December 2, appeared Court, this purpose setting date. established, noting overcrowded conditions Center, directed respective until shortly trials. 5 April 26, 1976, removed taken 29, 1976. Prior these appearances, indictment.4 dismiss finding governed removal IV(e). 6 appeal divided panel Second Circuit affirmed dismissals respondents' indictments. 588 (1976). held "writ entitling inmate protection provided Article IV [of Agreement] specifically return institution." Id., 592 (footnote omitted). To hold reasoned would permit circumvent B 7 Respondent Ford, Chicago October 11, 1973, two warrants.5 Shortly arrest, older, While Ford bank robbery charge letters sent Attorney District.6 warrant 8 Ford's charging aggravated robbery. 1, 1974, March 25, 1974. represented counsel, proceedings adjourned 15, pleaded guilty superseding indictment.7 Trial set 28, 9 commence, September five occasions court's initiative.8 During period while awaiting prison; received permission preparation trial. 4, response Government's trial.9 support alleged furlough remained him. His denied. 10 August 8, grounds. jury resulted verdicts counts. 11 Circuit, argued, other things, prejudice Agreement,10 panel,11 one judge dissenting, contention res lt comply IV(c).12 732 (1977). that, regardless clearly governs situations Ford's, view Appeals, availability" IV(a). Having concluded violated, prejudice, V(c) Agreement.13 C 12 conflict Federal Courts issue,14 we certiorari15 consider use prisoners. II 13 origins date back 1948, group known Joint Committee Detainers16 report concerning problems arising expressing aims principles guidance prosecuting officials, parole These guiding principles, later served underpinnings follows: 14 "1. Every effort made accomplish promptly possible. 15 "2. There assurance released stand ial will institution released. 16 "3. Prison take settle them. 17 "4. No penalized unless thorough investigation found valid. "5. All jurisdictions observe interstate comity settlement detainers, each burden expenses involved disposing settling detainers." Bennett, Last Full Ounce, 23 Fed.Prob. 20, 22 (June 1959). 19 reconstituted auspices Council Governments. Then Sentencing Release Persons Accused Multiple Offenses, meetings 1955 1956, development approval proposals detainers. Among draft version 1956 proposal reviewed approved conference jointly sponsored American Association, Governments, National Probation Parole Legislative Cooperation.17 endorsement conference, Governments Suggested Legislation Program 1957. 20 form adopted jurisdictions, sets forth findings upon notes "charges outstanding complaints difficulties securing persons uncertainties obstruct programs treatment rehabilitation." Accordingly, disposition. 21 central III IV. provides procedure whom can giving rise warden inform source contents final III(c). If make request, 180 days.18 III(a). operates III(d), deemed extradition. III(e). Once available presenting "a written availability .."19 Two important limitations, previously referred to, placed authority once states 24 "[i]n respect proceeding possible article, shall commenced hundred twenty good cause shown open counsel present, matter grant reasonable continuance." 25 And try imprisoned: 26 "If indictment, information, complaint contemplated hereby prior article V(e) hereof, force effect, enter dismissing same prejudice." 27 similarly "indictment, basis lodged" specified IV(c). 28 into behalf relatively discussion apparent opposition. See 116 Cong.Rec. 13997-14000, 38840-38842 (1970). legislation introduced 90th General; occasion, passed House, Senate failed approve it. 91st Congress, noted House Reports: 29 "The General advised committee seriously disadvantaged action. He therefore position seek witnesses preserve defense. often kept close ineligible desirable work assignments. What more, sometimes loses interest institutional opportunities serve sentence knowing what additional lie him, when, ever, employ education skills developing." H.R.Rep. 91-1018, p. (1970); S.Rep. 91-1356, (1970), U.S.Code Cong. & Admin.News 1970, 4864, 4866. 30 now vigorously argues law, capacity "sending State." contends "Congress participate allowing more readily custodian." Brief 16. Thus, argues, relevance here recipient We grounds offered conclude, question,20 31 even concedes, expressly includes "State"21 defines "Receiving State" "the hereof." II(c). gives indication exempted category States. contrary, VIII "[t]his agreement full effect law" (emphasis added).22 32 brief exists contention. true, points out, most comment proposed encountered whatsoever participation limited one. Senator Hruska, example, spoke favor floor Senate, saying: 33 By enactment bill become signatories approving measure today insure part vitally needed system simplified uniform rules exchange prisoners." 38840 34 Neither nor anyone else drew distinction between extent observation expect 35 Nor persuaded argument efficient prisoners—the Although perhaps gain much entry some States,23 remains enact entirety, qualification membership reference reports recommendation General, see supra, 353, indicates motivated, desire aid alleviate systems lodging r ason assume less concerned about effects leads none concerned, think addressed discuss below.24 36 courts authorized § 2241(a) corpus; power issue testify 2241(c)(5). This examined great detail observing Judiciary Stat. 81, corpus. Carbo Un ted 364 611, 614, 81 338, (1961). writs, Chief Marshall, Ex parte Bollman, Cranch 75, L.Ed. 554 (1807), interpreted words "habeas corpus" generic "necessary remove prosecute wherein offense committed." Carbo, U.S., 615, S.Ct., 341 Since statutory doubted. 1948 explicit 2241, 1961 territorial boundaries supra. 37 officer.25 Rather release Further Before clear relieved obligation defendant just elsewhere, Smith Hooey, 393 374, 89 575, 607 (1969), allowed remain lengthy periods quite duration sentence. 38 contains word "detainer." Reports, explain "[a] notification sentence, advising face jurisdiction." 4865. broad enough intended. 39 recommending adoption outlined caused address. administrators "thwarted [their] effort[s] toward rehabilitation [because t]he frequently respond training program." 1957, 74 (1956). Furthermore, deprived ability advantage many prison's aimed rehabilitation, problem Director Bureau Prisons, 1959 stated "remember[ed] day automatically guaranteed experiences relaxed situations, farm, represent valuable resource treating testing progress." pointed out existence presented sentencing; defendant, sentencing hesitate long thought might otherwise indicated, possibility subsequent sentences. "proper sentencing, treatment, modified." 74. Similar Congress. 353. 40 adverse prompted drafting consequence it, prison, efforts frustrated. For reasons [outstanding] I added). 41 express immediately executed, achieve above, issuance dating First Act. aware "detainer," meant something different Contrary construe keep evading duties seeks eliminate do arise;26 accordingly, sense circumventing writ. conclude 42 provisions. erred affirming respondents. V 43 Our analysis us reject lodges becomes lodged, precipitated very concerned. matters day; case finally resolved, situation custody.27 44 request" writs; neither persuasive. 30-day waiting during Governor disapprove State's request. federal-court order, contrary Supremacy Clause, refuse obey unimpressed. proviso purport augment d shonor provision makes clear, existing rights expand them.28 dishonor read providing authority. inconsistent inclusion requests." 45 requirement applies "proceeding ." manner accept narrow reading provision; commencement whenever initiates Any section allow advantages prisoner29 assuming responsibilities arise action.30 Finally, agree conti ued sought delay bringing deem actions 47 challenge conclusion applicable, extensive correctly judgment ordered 48 reversed, consistent opinion. 49 ordered. 50 REHNQUIST, THE CHIEF JUSTICE joins, concurring dissenting 51 Court's Detainers. observes, ante, 360: "[T]he 'detainer,' prosequendum." Indeed, simply nothing language indicate cut But cannot 52 am struck interesting approach construction, significance lost casual reader. considers compels, indeed supports, result, "purposes Congress" supposedly lead result. Ante, 361. One certainly find resort interpretative aids difficult questions construction arise. thought, turn resorting extra-statutory aids. Kahn, 415 143, 151, 94 977, 982, 225 (1974). 53 reason, necessity, pursuing opposite course apparent, however. conclusion. speaks "requests" custody. instant hand, Institution Walpole "HEREBY COMMANDED body RICHARD THOMSON FORD Judges our Court" certain. App. 8. doubt surprised hear "requested" 54 encompass corpus, seems me inconceivable operation thereby new flow use, simpl phrase fact, intimations contrary. Reports Committees suggest intend established exclusive effecting transfer prosecution. 55 method whereby expiration passage dulled memory unavailable." (Emphasis added.) Report S. 1975 leaves Congressmen directly limiting states: 57 "Federal prosecution always continue recourse 2241(c)(5), intend, believe enacting intended, limit applicability writ." 94-00, 984 (1975).* 58 likewise myself loss discover exactly "precipitated" how process allows 362. recognizes primary solution 356, 359-360. Upon mere desires. 351. excuses using token, chooses remaining files detainer, still attach choose those procedures. anything precipitates alleviate. relate pretrial delay, Speedy Act 1361 et seq. creates limits tried, lessen totally dissipate concerns. 59 shrug off cavalierly arguments w th related opportunity "request," comply. responds rights, 363. all. picking choosing apply not, consistently scheme facially wrong outset. justification, importantly, standards, engaging sort gerrymandering statute. Rather, if, admits, "preserve" Governor's logical inference therefrom refused. 60 "proceeding[s] whose "made possible" IV, contained therein case. primly refuses "accept provision," 363-364, ventures alternative reading, broad, defensible Government. 61 admits by, fairly surmise paucity largely behest of, Department Justice, unequivocally endorsed legislation. 5-6; 5-6. through actions, though words, fall administrative entitled weight accompanied contemporaneous, well-reasoned explanation. least today, weight, particularly entirely or, is, undermines, construction. Cf. Correll, 389 299, 304, 88 445, 448, 537 (1967). 62 sum, left distinct impression stretching reach policy standpoint. normal tools justify interpretation condemn dissent eight sections. Section jurisdictions. Provisions herein numbers, arose refusal despite judicial immunity, grand investigating violations drug laws. three years life Auburn, N. Y., Facility, year Clinton Facility Dannemora, Y. infra, 352-353. warrants, robbery; other, unlawful flight. latter eventually letters, Illinois, escape. tri l dropping charge. said constitutional charged James R. Flynn firearm commission robbery, transportation stolen vehicle, conspiracy commit above offenses. 17, adjourn 90 codefendant apprehended, whichever occurred first. granted, rescheduled 21, second postponement reassignment 1974; reset 18, 90-day adjournment apprehend Flynn. objections, February Judge engaged stock-fraud postponed; June decision undertake "crash" program civil cases. contended Constitution Rules York. text 352. Mansfield, dissented Circuit's waived requesting claim, repeatedly insisted addition Third Sorrell, 562 227 (1977) (en banc), cert. pending, 77-593. Ridgeway 558 357 (C.A.6 1977), 77-5252; Kenaan, 557 912 (C.A.1 77-206; Scallion, 548 1168 (C.A.5 76-6559. 434 816, 53, 71, 72 up representatives organizations: Compact Administrators Association Attorneys Conference Commissioners Uniform Laws, Criminal Law Bar Association. attendance Justice. continuance. officer accordance V(a) hereof presentation incarcerated: Provided, That duly approved, recorded, transmitted request: further, thirty receipt honored, availability, prisoner." rejected State: F.2d, 232 n. 7; 915 6; Fifth 1174. Under "State" States; America; territory possession Columbia; Commonwealth Puerto Rico." II(a). Both passage. 4864. satisfactory. traditional formal proceedings. permitted investigate determine surrendered. extradition, arrest legality arrest. going contracts controlling arriving contract, outweigh benefit frequent transfers methods, developed informal practice prisoners; seeking transfer, notify completion led various problems, discussed overcome. simple congressional cited convince Department's opinion, now, statement (in enacted) warrants departing wording 3161 limitations prescribed, stringent limitation applied. irrelevant bills currently 1437, 95th Cong., 1st Sess., 3201 (1977); H.R. 6869, (1977), demonstrates purposes; furthermore, confirming purposes. Problems possibly resulting lack supervision described Fourth Circuit: "Detainers, aides [sic ] intrastate administration, serious side-effects. informality difficulty. Requests imprisoning detain person incarcerate groundlessly, bad faith, suspected appellant accusation proved; issuing happens, unestablished rested detainee hampered quest commutation." Pitts North Carolina, 395 182, 187 (1968) IV's shuttled penal institutions. problem, noted, arises real o attendant problems. course, alone run longer operative similar referring supported trial," 3161(j)(4) 35. difference, says, applicability. overlooks face, expression intent. IX liberally construed effectuate purposes." note preserved (1970) added); 4865 terms: "[A] (on public grounds) retained." 78 (1956) oral play function. Tr. Oral Arg. 37. They contemplated, notified. informed approximately 5,000 3,000 13. arguing refers indicating Nothing indicates, proceed ever detainer; inapplicable. Agreement's overwhelmingly persuasive, postdates time. Such so-called "subsequent history" "serve change intent Act's passage." Regional Rail Reorganization Cases, 419 102, 132, 95 335, 320 does, personal views legislators, ibid., significance, members

Category: 0