Court Opinion

ID: 9927157
Source: CourtListenerOpinion
Date Created: 2024-01-26 15:02:33.085115+00
Date Added: 2024-06-11T09:24:00.386587
License: Public Domain

DISTRICT COURT OF APPEAL OF FLORIDA
                        SECOND DISTRICT

                           STATE OF FLORIDA,

                                Appellant,

                                     v.

                        ANDREW SCOTT CROSE,

                                 Appellee.

                              No. 2D21-2784

                            January 26, 2024

Appeal from the Circuit Court for Sarasota County; Donna Padar, Judge.

Ashley Moody, Attorney General, Henry C. Whitaker, Solicitor General,
Jeffrey Paul DeSousa, Chief Deputy Solicitor General, Tallahassee, and
Elba Caridad Martin, Assistant Attorney General, Tampa, for Appellant.

Howard L. Dimmig, II, Public Defender, and Daniel Muller, Assistant
Public Defender, Bartow, for Appellee.

                                 EN BANC

LUCAS, Judge.
     The State of Florida appeals an order dismissing a charge against
Andrew Scott Crose for failure of a sex offender to report an electronic
mail address or instant message name, a violation of sections
943.0435(4)(e) and (9), Florida Statutes (2019). The issue before the
circuit court was whether, at the time of his alleged offense, Mr. Crose
had completed the underlying "sanction" of his original offense such that
he was required to register as a sex offender. If he had completed the
sanction, he could be prosecuted for this offense; if he hadn't, he
couldn't.
      Whether a sex offender has completed his prior criminal sanction
would seem to be a relatively simple inquiry. But a panel decision
interpreting section 943.0435(1)'s definition of "the sanction," followed by
a legislative amendment in response to that decision, followed by a
subsequent panel decision responding to that amendment, complicates
the matter. We proceed en banc today for two purposes: to resolve our
conflicting panel decisions and, more broadly, to address the facet of
common law that precipitated that conflict.
                                      I.
      Because of the nature of the issue we must address and how the
timing of legal developments impacted the proceedings below, our
recitation of the facts and our legal analysis are somewhat intertwined.
In this section, we recount Mr. Crose's criminal history, the charge the
State now alleges against him, and how the law concerning that criminal
charge has changed during the course of the circuit court case and this
appeal.
                                     A.
      In 2016, Mr. Crose was convicted for the use of a computer to
seduce, solicit, or entice a child to commit a sex act in violation of section
847.0135(3)(a), Florida Statutes (2015). He was sentenced to four years
in prison, followed by one year of sex offender probation, and designated
as a "sex offender" under section 943.0435(1)(a)1. In 2019, after Mr.
Crose had been released from prison but while he was still serving

                                      2
probation, he was again arrested for use of a computer to solicit a child
to commit a sex act and for traveling to solicit a child to commit a sex
act. The State alleges that Mr. Crose used an instant message or social
media account on the "MeetMe" application to commit the offense in July
of that year.
      In the case at bar, the State charged Mr. Crose with failure of a sex
offender to report an electronic mail address or instant message name
under sections 943.0435(4)(e) and (9), a third-degree felony.1 Mr. Crose
filed, pro se, a motion to dismiss the charge, arguing that since his
sanction was not completed (because he hadn't finished probation) he
wasn't (yet) required to register his e-mail or instant message names as a
sex offender.
      In order to better understand what transpired in the circuit court
proceedings, we must pause here and unpack what his argument
entailed. Under section 943.0435(4)(e), a designated "sex offender" is
required to undertake a variety of registration requirements, including
registering e-mail and instant messaging accounts. At the time of Mr.
Crose's offense, the pertinent parts of section 943.0435(1)(h) defined who
qualifies as a "sex offender" (and, hence, who must register) as follows:
      (h) 1. "Sexual offender" means a person who meets the criteria
      in sub-subparagraph a., sub-subparagraph b., sub-
      subparagraph c., or sub-subparagraph d., as follows:

      a. (I) Has been convicted of committing, or attempting,
      soliciting, or conspiring to commit, any of the criminal
      offenses proscribed in the following statutes in this state or

      1 We are informed that the State has also pursued a separate

violation of probation proceeding against Mr. Crose. Nothing in our
opinion today addresses any aspect of that proceeding. We would also
note that although there are other statutory registration requirements for
offenses such as Mr. Crose's, section 943.0435(4)(e) is the only one the
State pursued in the case before us.
                                     3
      similar offenses in another jurisdiction: s. 393.135(2); s.
      394.4593(2); s. 787.01, s. 787.02, or s. 787.025(2)(c), where
      the victim is a minor; s. 787.06(3)(b), (d), (f), or (g); former s.
      787.06(3)(h); s. 794.011, excluding s. 794.011(10); s. 794.05;
      former s. 796.03; former s. 796.035; s. 800.04; s. 810.145(8);
      s. 825.1025; s. 827.071; s. 847.0133; s. 847.0135, excluding
      s. 847.0135(6); s. 847.0137; s. 847.0138; s. 847.0145; . . . or
      any similar offense committed in this state which has been
      redesignated from a former statute number to one of those
      listed in this sub-sub-subparagraph; and

      (II) Has been released on or after October 1, 1997, from the
      sanction imposed for any conviction of an offense described
      in sub-sub-subparagraph (I). For purposes of sub-sub-
      subparagraph (I), a sanction imposed in this state or in
      any other jurisdiction includes, but is not limited to, a
      fine, probation, community control, parole, conditional
      release, control release, or incarceration in a state prison,
      federal prison, private correctional facility, or local
      detention facility . . . .
(Emphasis added.)
      In State v. James, 298 So. 3d 90 (Fla. 2d DCA 2020), we construed
this statutory language to affirm a trial court's dismissal of a failure to
register charge in a situation almost identical to Mr. Crose's. The
defendant in James had completed his incarceration, but he hadn't paid
his $10,000 fine, which was part of the sanction the court had imposed.
James, 298 So. 3d at 91. Citing fundamental principles of statutory
construction, we concluded that
      Mr. James' entire "sanction" for his conviction under section
      800.04 consists of fifteen years' prison and a $10,000
      fine. . . . Accordingly, his sanction, as a whole, has not been
      released, and he does not qualify as a "sexual offender" for
      purposes of reporting and registration under section
      943.0435.

                                       4
Id. at 92. Mr. Crose's motion to dismiss argued that James'
interpretation and application of the statute was dispositive and required
dismissal of this criminal charge.
                                     B.
     If James had remained the last word on the subject, the circuit
court's ruling (and the assigned panel's review of it) would have been
relatively uncomplicated. But within a relatively short span of time, two
developments transpired.
                                     1.
     The first was the legislature's amendment to subsection (h)1 of
section 943.0435(1), which was enacted during the session immediately
following James' issuance, well after Mr. Crose's alleged offense but
before the circuit court had heard Mr. Crose's motion to dismiss.
     In amending the subsection, the legislature specifically stated:
     The Legislature finds that the opinion in State v. James,
     298 So. 3d 90 (Fla. 2d DCA 2020), is contrary to
     legislative intent and that a person's failure to pay a fine
     does not relieve him or her of the requirement to register as a
     sexual offender pursuant to s. 943.0435, Florida Statutes.
     The Legislature intends that a person must register as a
     sexual offender pursuant to s. 943.0435, Florida Statutes,
     when he or she has been convicted of a qualifying offense
     and, on or after October 1, 1997, has:
     (1) No sanction imposed upon conviction; or
     (2) Been released from a sanction imposed upon conviction.
See ch. 2021-156, § 1, Laws of Fla. (2021) (emphases added). The
legislature also amended section 943.0435(1)(h)1.a.II, removing "fine"
from the list of penalties that could be construed as a "sanction."
     Armed with this new enactment, the State sought to convince the
circuit court that the charge against Mr. Crose should be allowed to
proceed. The State didn't go so far as to suggest that the amended

                                     5
version of the statute should apply, after the fact, to Mr. Crose's criminal
charge, which arose from conduct that allegedly occurred some two years
before the amendment went into effect. But the State did maintain that
the circuit court could—and should—consider the legislature's stated
intention when it amended the statute because the amendment
"effectively overturn[ed] James."
     The circuit court was not persuaded by the State's arguments. In
granting Mr. Crose's motion to dismiss, the court ruled:
     Based on the facts and circumstances of this case and the
     language of the applicable statute, the Court finds the
     Defendant's argument persuasive and the James case
     controlling. Though[] the legislature has now made its intent
     clear, the modification has not yet gone into effect. At the
     time the Defendant committed the alleged crime in this case,
     he was on probation and still under the supervision of the
     Department of Corrections.
     The State then filed a motion for rehearing and fleshed out its prior
argument. On rehearing, the State pointed out that the amendment to
section 943.0435 had, in fact, gone into effect by the time the court ruled
upon the motion to dismiss,2 that James was not controlling "because
the James court did not have the benefit of a clear statement of the
Legislature's intent, as this Court now does," and that since the circuit
court now knew what the legislature's intent about the prior version of
the statutory language truly was (that is, that the completion of any part

     2 Factually speaking, the State was correct on this point, insofar as

the amendments became effective on July 1, 2021, and the trial court
rendered its order on July 30. The point, however, was a non sequitur
because, again, Mr. Crose's alleged criminal conduct occurred in July of
2019. See Allen v. State, 324 So. 3d 920, 925 n.5 (Fla. 2021) ("[I]t is
firmly established law that the statutes in effect at the time of
commission of a crime control as to the offenses for which the
perpetrator can be convicted, as well as the punishments which may be
imposed." (quoting State v. Smith, 547 So. 2d 613, 616 (Fla. 1989))).
                                     6
of "a sanction" should trigger the requirement to register as a sex
offender), the court should deny Mr. Crose's motion to dismiss.
      Mr. Crose (now represented by the Public Defender's office)
countered that notwithstanding the subsequent amendment to the
statute, James was controlling precedent and that, as such, it had to be
applied to Mr. Crose's case. Furthermore, he argued that allowing the
legislature to retroactively refine the application of a criminal statute
violated the constitutional prohibition against ex post facto laws.3
      The court again agreed with Mr. Crose and entered an amended
order granting his motion to dismiss. In addition to the reasoning set forth
in its prior order, the court added:
      [A]pplying the new 2021 statutory definition to Defendant's
      2019 conduct runs afoul of the prohibition against ex post
      facto laws: "For a criminal law to be ex post facto it must be
      retrospective, that is, it must apply to events that occurred
      before its enactment; and it must alter the definition of
      criminal conduct or increase the penalty by which a crime is
      punishable." Victorino v. State, 241 So. 3d 48[, 50] (Fla. 2018)
      (citing Lynce v. Mathis, 519 U.S. 433 (1997)). The effect of
      applying the 2021 change in the definition of "sexual offender"
      to Defendant's status and his conduct in 2019 amounts to an
      ex post facto law.
The State then initiated its appeal.
                                       2.
      The second development arose while the State's appeal was under
consideration. Before Mr. Crose filed his answer brief, this court
changed course, so to speak, about how to interpret section
935.0435(1)(h)1's definition of a sexual offender. In Hull v. State, 349 So.

      3 Accord art. I, § 10, cl. 1, U.S. Const. ("No State shall . . . pass any

Bill of Attainder, ex post facto Law . . . ."); art. I, § 10, Fla. Const.
("Prohibited laws.—No bill of attainder, ex post facto law or law impairing
the obligation of contracts shall be passed.").
                                       7
3d 459, 464-65 (Fla. 2d DCA 2022), a divided panel "reluctantly
affirm[ed]" a trial court's order denying a sexual offender's motion to
dismiss a failure to register charge, concluding that, under the prior
version of section 943.0435(1), "a person who has failed to pay court
costs is not relieved of the requirement to register and report as a sexual
offender." The holding in Hull directly contradicted the court's prior
holding in James, even though the operative term at issue in Hull—that
the defendant be released from "the sanction"—was precisely the same
one as was at issue in James. Contra James, Hull held that a sex
offender defendant did indeed have to register, notwithstanding his
nonpayment of the $10,000 fine that was part of his criminal sanction.
Id. at 465.
      Why the turnaround from James? The Hull majority concluded
that it was bound by the "recent controversy rule" to reexamine our prior
application of the prior version of section 943.0435(1). We explained:
      Under this [the recent controversy] rule, when "an
      amendment to a statute is enacted soon after controversies as
      to the interpretation of the original act arise, a court may
      consider that amendment as a legislative interpretation of the
      original law and not as a substantive change thereof." See
      Lowry v. Parole & Prob. Comm'n, 473 So. 2d 1248, 1250 (Fla.
      1985); see also Madison at Soho II Condo. Ass'n v. Devo
      Acquisition Enters., 198 So. 3d 1111, 1116 (Fla. 2d DCA
      2016).
Id. at 462 n.4.
      Applying this rule, Hull held that "the legislature's abrogation of
James and the legislature's express and specific clarification of its intent"
bound the court "to conclude that a person who has failed to pay court
costs is not relieved of the requirement to register and report as a sexual
offender." Id. at 465.

                                      8
      With Mr. Crose's appeal still "in the pipeline" at the time Hull
issued, see Wheeler v. State, 344 So. 2d 244, 245 (Fla. 1977) ("The
decisional law in effect at the time an appeal is decided governs the
issues raised on appeal, even where there has been a change of law since
the time of trial." (citing Evans v. St. Regis Paper Co., 287 So. 2d 296 (Fla.
1973); Williams v. Wainwright, 325 So. 2d 485 (Fla. 4th DCA 1975);
Cosby v. State, 297 So. 2d 617 (Fla. 1st DCA 1974))), the panel assigned
to the case at bar found itself in the dilemma of having two recent,
binding panel decisions that would yield two diametrically different
outcomes. Under James' construction of the statute, the court's
dismissal of Mr. Crose's charge would be affirmed; under Hull, a reversal
would be required.
      The State, not surprisingly, urges us to ignore James and follow
Hull. Mr. Crose argues that we got it right in James and wrong in Hull.
In his briefing, Mr. Crose picks up the argument raised below concerning
the ex post facto application of the post-James statutory amendment. He
maintains that the recent controversy rule amounts to an
unconstitutional after-the-fact amendment of criminal law and, in all
events, violates the supremacy-of-text principle of statutory construction.
      On its own motion the court voted to proceed en banc. See Fla. R.
App. P. 9.331(a). With the benefit of supplemental briefing from the
parties, we now proceed with resolving this case and the conflict that has
arisen in our court's panel decisions.
                                     II.
      "Because a motion to dismiss pursuant to rule 3.190(c)(4) requires
the lower court to make a pretrial determination of the law of the case
when the facts are not in dispute, the standard of review on appeal is de
novo." State v. Delprete, 331 So. 3d 174, 176 (Fla. 4th DCA 2021)

                                      9
(quoting State v. Benjamin, 187 So. 3d 352, 354 (Fla. 4th DCA 2016)).
There were no facts in dispute before the circuit court; this case turns on
an interpretation of a statute, a legal determination that is reviewed de
novo. See Braine v. State, 255 So. 3d 470, 471 (Fla. 2d DCA 2018)
("Statutory interpretation raises an issue of law, and we review the trial
court's ruling de novo." (quoting Wegner v. State, 928 So. 2d 436, 438
(Fla. 2d DCA 2006))).
        When interpreting statutes, the Florida Supreme Court has now
instructed us to "follow the 'supremacy-of-text principle'—namely, the
principle that '[t]he words of a governing text are of paramount concern,
and what they convey, in their context, is what the text means.' " Ham v.
Portfolio Recovery Assocs., 308 So. 3d 942, 946 (Fla. 2020) (alteration in
original) (quoting Antonin Scalia & Bryan Garner, Reading Law: The
Interpretation of Legal Texts 56 (2012)). Our interpretative work here,
however, cannot be performed without first considering the body of case
law surrounding the recent controversy rule, a task to which we will now
turn.
                                     III.
        Our analysis will begin with an examination of the issue seized
upon in Hull and the heart of this case, the recent controversy rule. We
will proceed through this rule's history, its development, and its current
state in our district. We will then examine several reasons why we
believe this common law rule can no longer be aligned within current
Florida jurisprudence. We will conclude by resolving this case in light of
the principles of statutory interpretation we are now charged with
applying.
                                      A.
                                      1.

                                     10
      We can trace the first application of what would eventually become
the recent controversy rule4 to a sales tax dispute. In Gay v. Canada Dry
Bottling Co. of Florida, 59 So. 2d 788, 788 (Fla. 1952), the Florida
Supreme Court was called upon to decide whether a soft drink bottler
purchasing bottles, cases, and parts for the purpose of distributing its
products was engaged in a "retail sale" subject to tax under section
212.03(3), Florida Statutes (1949). The court canvassed and contrasted
other state court decisions that had exempted nonreturnable containers
from retail sale taxes. Id. at 789. Because consumers could return the
company's bottles for a cash or credit refund (which, the company
argued, implicated a "for resale" exemption to the tax), the Gay court
concluded that "[t]he State would derive no revenue whatsoever from the
sale or use of all those containers which are returned to the seller of the
product contained therein and by him [the seller] discarded as unfit for
further use." Id. at 790. Accordingly, the sales were subject to the tax.
Id.
      Recognizing that its interpretation might not have been "a strict
adherence to the letter of the definition" in the statute, the court
remarked that the "[l]egislature of this State at its 1951 session amended
the Revenue Act of 1949 to specifically provide that the [resale]
exemption . . . applied only to those [materials] which are intended to be

      4 Although we find the substance of the rule stated as early as 1930

in the case of Amos v. Conkling, 126 So. 283, 288 (Fla. 1930) ("[I]t is
proper to consider, not only acts passed at the same session of the
Legislature, but also acts passed at prior or subsequent sessions, and
even those which have been repealed." (citing Old Homestead Bakery v.
Marsh, 242 P. 749 (Cal. Ct. App. 1925))), its underlying principle—
construing prior statutes by referencing subsequent amendments—
would not be applied in earnest until the 1950s.
                                     11
used one time only." Id. From this development, the Gay court
appended a new approach to construing tax statutes in Florida:
      We think, as did the California court in [Coca-Cola Co. v. State
      Board of Equalization, 156 P.2d 1, 2 (Cal. 1945),] that "This
      change may be considered in determining the scope of the tax
      statute at the time of the transactions here involved for in
      view of an amendment to the Retail Sales Tax Act at a time
      when certain groups were resisting collection of taxes
      assessed against them, the court could infer a legislative
      intent to clarify rather than change the existing law."
Id.
      The next sentences of the opinion, however, seemed to allow (or
perhaps even mandate) the application of this novel tool of construction
to any amendment to any kind of statute:
      The rule seems to be well established the interpretation of a
      statute by the legislative department goes far to remove doubt
      as to the meaning of the law. The court has the right and the
      duty, in arriving at the correct meaning of a prior statute, to
      consider subsequent legislation.
Id. (emphasis added) (quoting Gen. Petroleum Corp. of Cal. v. Smith, 157
P.2d 356, 360 (Ariz. 1945)).
      In the ensuing years, Florida courts would occasionally reference
Gay's holding that statutory amendments could clarify prior legislation,5
but the recent controversy rule as we now know it wouldn't come into full
bloom until 1985. That was when, for the first time, the Florida Supreme
Court began to construe legislative amendments enacted in response to
legal controversies as a tool for interpreting prior, preamendment
legislative meaning. Two cases, Lowry v. Parole & Probation Commission,

      5 See, e.g., Ivey v. Chi. Ins. Co., 410 So. 2d 494, 497 (Fla. 1982);

Williams v. Hartford Acc. & Indem. Co., 382 So. 2d 1216, 1220 (Fla.
1980); Overstreet v. Pollak, 127 So. 2d 124, 124-25 (Fla. 3d DCA 1961).
                                     12
473 So. 2d 1248 (Fla. 1985), and State v. Lanier, 464 So. 2d 1192 (Fla.
1985), laid the foundation for this expansion.
     In Lowry, 473 So. 2d at 1248-49, a prisoner serving two
consecutive sentences had been granted parole before he began serving
his second sentence. Shortly before his parole release date, the Attorney
General issued Opinion 85-11, which, construing section 947.16, Florida
Statutes (1973), opined that a prisoner serving consecutive sentences
could not lawfully be eligible for parole if he hadn't begun serving the
latter sentence. Id. at 1249. Although Lowry had fulfilled his parole
obligations, the parole commission adopted the Attorney General's
opinion and withdrew his parole; he then filed a petition for a writ of
mandamus with the supreme court. Id.
     Working through the competing arguments, the court in Lowry
observed:
     Petitioner and respondents have all urged cogent arguments
     supporting their disparate interpretations of the statutes in
     question. Where reasonable differences arise as to the
     meaning or application of a statute, the legislative intent
     must be the polestar of judicial construction. Tampa-
     Hillsborough County Expressway Authority v. K.E. Morris
     Alignment Services, Inc., 444 So. 2d 926 (Fla. 1983); Tyson v.
     Lanier, 156 So. 2d 833 (Fla. 1963). Petitioner and respondent
     filed notices of pending legislation ordered enrolled, bringing
     to the Court's attention Committee Substitute for House Bill
     1298, ordered enrolled May 30, 1985 and submitted to the
     Governor and signed into law June 11, 1985, effective upon
     becoming law. This bill clarified the manner in which
     presumptive parole release dates are to be calculated for
     prisoners serving consecutive sentences. It specifically
     provides that "The guidelines shall require the commission to
     aggravate or aggregate each consecutive sentence in
     establishing the presumptive parole release date." At oral
     argument, counsel for respondent Wainwright conceded that
     under the pending legislation, petitioner would be entitled to
     release.

                                     13
           When, as occurred here, an amendment to a statute is
     enacted soon after controversies as to the interpretation of the
     original act arise, a court may consider that amendment as a
     legislative interpretation of the original law and not as a
     substantive change thereof. United States ex rel. Guest v.
     Perkins, 17 F. Supp. 177 (D.D.C. 1936); Hambel v. Lowry, 264
     Mo. 168, 174 S.W. 405 (Mo. 1915). This Court has
     recognized the propriety of considering subsequent legislation
     in arriving at the proper interpretation of the prior statute.
     Gay v. Canada Dry Bottling Co., 59 So. 2d 788 (Fla. 1952).
           In examining Chapter 947 in light of section 775.021(4),
     Florida Statutes (1983) and section 775.087(2), Florida
     Statutes (1983), it is unmistakable that the amendments
     contained in the pending bill are expressions of prior and
     continuing legislative intent. Thus we hold that while AGO 85-
     11 is a reasonable interpretation of the law, it does not
     represent legislative intent.
Id. at 1249-50 (emphasis added).
     Lanier offered a more succinct—and more robust—application of
this approach. In Lanier, 464 So. 2d at 1193, the court accepted
jurisdiction of a question of great public importance as to whether a
defendant could be convicted of a lewd, lascivious, or indecent act on a
twelve-year-old child where "the undisputed facts reveal that the twelve-
year-old was previously unchaste and the sexual intercourse was
consensual." The Third District had answered the question in the
negative. Id. The Florida Supreme Court disagreed and quashed the
appellate court's decision. Id.
     The entire basis of Lanier's rationale was an amendment to the
pertinent criminal statute, section 800.04, Florida Statutes (1983), that
occurred shortly after the question had been certified. Id. That
amendment, "which was designed to specifically cover the acts
committed in the instant case," provided that neither lack of chastity nor
consent could be a defense to that particular crime. Id. The court
                                    14
acknowledged that it had to apply the statute "as it existed at the time
the allegedly lewd and lascivious acts occurred, prior to the enactment of
the amendment." Id. And the court was not "bound by statements of
legislative intent uttered subsequent to either the enactment of a statute
or the actions which allegedly violate the statute." Id. Nevertheless, the
court would "show great deference to such statements, especially in a
case such as this, when the enactment of an amendment to a statute is
passed merely to clarify existing law." Id. That "great deference"
compelled the court to conclude that the legislature's subsequent
disavowal of these defenses indicated that the legislature never intended
for them to be defenses in the first place. Id.
     Since Lanier and Lowry, statutory amendments have been
marshalled to ascertain the meaning of preamendment statutory text on
numerous occasions. See, e.g., Hardee County v. FINR II, Inc., 221 So. 3d
1162, 1167 (Fla. 2017); Metropolitan Dade County v. Chase Fed. Hous.
Corp., 737 So. 2d 494, 503 (Fla. 1999); Finely v. Scott, 707 So. 2d 1112,
1116-17 (Fla. 1998); Palma Del Mar Condo. Ass'n #5 of St. Petersburg, Inc.
v. Com. Laundries of W. Fla., Inc., 586 So. 2d 315, 317 (Fla. 1991); Hull,
349 So. 3d at 459; Madison at Soho II Condo. Ass'n v. Devo Acquisition
Enters., 198 So. 3d 1111, 1116 (Fla. 2d DCA 2016); Essex Ins. Co. v.
Integrated Drainage Sols., Inc., 124 So. 3d 947, 952 (Fla. 2d DCA 2013);
Archstone Palmetto Park, LLC v. Kennedy, 132 So. 3d 347, 352-53 (Fla.
4th DCA 2014); Sch. Dist. of Martin Cnty. v. Pub. Emps. Rels. Comm'n, 15
So. 3d 42, 45-46 (Fla. 4th DCA 2009); G.E.L. Corp. v. Dep't of Env't Prot.,
875 So. 2d 1257, 1262-63 (Fla. 5th DCA 2004); State Dep't of Bus. &
Prof. Reg., Div. of Pari-Mutuel Wagering v. WJA Realty Ltd. P'ship, 679 So.
2d 302, 306 (Fla. 3d DCA 1996); Kaplan v. Peterson, 674 So. 2d 201, 205
(Fla. 5th DCA 1996); State Dep't of Banking & Fin. v. Evans, 540 So. 2d

                                     15
884, 887 (Fla. 1st DCA 1989); State Dep't of Lab. & Emp. Sec. v. Mission
Ins. Co., 507 So. 2d 137, 138 n.1 (Fla. 1st DCA 1987).
      Though it is more frequently invoked in civil controversies, the
Florida Supreme Court has been clear that this tool for divining
legislative intent is available in criminal cases. As the court explained in
Leftwich v. Florida Department of Corrections, 148 So. 3d 79, 84 (Fla.
2014), "the United States Supreme Court has held that the federal ex
post facto clause generally does not apply to judicial precedent." (citing
Marks v. United States, 430 U.S. 188, 191 (1977)). Thus, while a
clarifying amendment cannot be used to construe an ambiguous criminal
statute in a way that would result in a longer prison sentence, an
amendment to a criminal statute may still be relevant to determine the
intent of the previous version of the statute. Id. at 83; see also Hull, 349
So. 3d at 465 ("[T]he legislature explicitly clarified that failure to pay a
'fine' in this context does not relieve a person 'of the requirement to
register as a sexual offender.' Ch. 2021-156, § 1, Laws of Fla. . . . Under
the recent-controversy rule, it follows that the term costs should not be
read into the definition of sanction in the preamendment version of the
statute."); Burgos v. State, 765 So. 2d 967, 968 (Fla. 4th DCA 2000)
(construing statutory amendment to clarify felon registration
requirements, which were "regulatory, not punitive" and thus, did not
violate the ex post facto prohibition); State v. Sedia, 614 So. 2d 533, 535
(Fla. 4th DCA 1993) (relying on a 1992 amendment, which stated "[t]he
legislature . . . never intended that the sexual battery offense described in
794.011(5) require any force or violence beyond the force and violence
that is inherent in the accomplishment of 'penetration' or 'union' " and
remarking "the legislature left no doubt as to its initial intention").

                                      16
     To be sure, there are times when courts have declined to consider
subsequent amendments when interpreting a prior version of a statute.
See, e.g., Nunez v. Geico Gen. Ins. Co., 117 So. 3d 388, 398 (Fla. 2013);
Dadeland Depot, Inc. v. St. Paul Fire & Marine Ins. Co., 945 So. 2d 1216,
1230-31 (Fla. 2006); McKenzie Check Advance of Fla., LLC v. Betts, 928
So. 2d 1204, 1210 (Fla. 2006); Parole Comm'n v. Cooper, 701 So. 2d 543,
544-45 (Fla. 1997); State Farm Mut. Auto. Ins. Co. v. Laforet, 658 So. 2d
55, 61-62 (Fla. 1995); Dean Wish, LLC v. Lee County, 326 So. 3d 840,
850-52 (Fla. 2d DCA 2021); Ramcharitar v. Derosins, 35 So. 3d 94, 98-99
(Fla. 3d DCA 2010); Betts v. McKenzie Check Advance of Fla., LLC, 879
So. 2d 667, 674 (Fla. 4th DCA 2004); Kleparek v. State, 634 So. 2d 1148,
1148 (Fla. 4th DCA 1994). But discerning an articulable and replicable
basis for that refrainment—whether because of the span of time between
an original enactment and its amendment or the length of years between
when a controversy arises and when an amendment is enacted in
response to the controversy or the degree of interpretive clarification
that's necessary to construe a prior statute—has remained an elusive,
and largely unsuccessful, endeavor in Florida case law. Compare Nunez,
117 So. 3d at 398 ("We therefore find that the 2012 amendment at issue
amounts to a substantive change, not just a legislative clarification, of
the PIP statute, especially considering the careful examination that
applies in this context and our responsibility to construe the provisions
of Florida's No-Fault Act liberally in favor of the insured."), and Dadeland
Depot, 945 So. 2d at 1230-31 (declining to apply rule, stating "[w]e are
also mindful that the Legislature's recent amendment to section 624.155
was passed twenty-three years after that statutory section's original
enactment, and some six years after the Southern District's opinion . . .
in which the district court indicated concern as to the correct

                                    17
interpretation of the term 'insured' "), and Betts, 928 So. 2d at 1210
("[W]e conclude that seven years is too long to view the amendment as
merely a clarification of legislative intent."), and Cooper, 701 So. 2d at
544-45 ("[I]t is inappropriate to use an amendment enacted ten years
after the original enactment to clarify original legislative intent."), and
Laforet, 658 So. 2d at 62 ("It would be absurd, however, to consider
legislation enacted more than ten years after the original act as a
clarification of original intent . . . ."), and Ramcharitar, 35 So. 3d at 98
(declining to apply rule since "the 2003 revision to section 440.10
occurred twenty years after the Court decided Abernathy and some
twenty-nine years after the 1974 amendment to section 440.10"), with
FINR II, Inc., 221 So. 3d at 1165, 1167 (holding that the "plain language
of the [Bert Harris] Act provides that claims under the Act may not be
based on government action on another parcel," but noting that,
"[b]ecause reasonable minds may disagree with this interpretation" a
statutory amendment passed nearly two decades after the original act
"made clear that the Act does not apply to property owners whose parcel
is not 'the subject of and directly impacted by the action of a
governmental entity' " (quoting ch. 2015-142, § 1, Laws of Fla. (2015))),
and State v. Bodden, 877 So. 2d 680, 688 n.13 (Fla. 2004) (noting, in
dicta, that a 2003 amendment to section 316.1932, Florida Statutes
(2002), clarified meaning of a statute that was first enacted twenty-one
years earlier), and Lowry, 473 So. 2d at 1249, 1250 (considering 1985
amendments to parole statutes to construe a section that "has not
changed in any material way since 1974"), and Essex Ins., 124 So. 3d at
951-52 (observing, in dicta, that by enacting a 2009 amendment to an
insurance statute "quickly" after a Florida Supreme Court decision, the
legislature "clarified that it had intended since 1988 that chapter 627 did

                                      18
not apply to surplus lines carriers"), and G.E.L., 875 So. 2d at 1262-63
(construing 2003 amendments to section 57.105, Florida Statutes
(2002), as clarifying the intent of section 120.595(1), which was enacted
in 1996), and Burgos, 765 So. 2d at 968-69 (applying rule to clarify
meaning of "conviction" for felon registration where amendment was
enacted two years after the applicable version of the statute and forty-
one years after the statute's original enactment).
     If the recent controversy rule is indeed a tool of statutory
interpretation, it seems an inconsistent, and awfully slippery, one to
wield.
                                     2.
     Our court has certainly struggled to gain a firm grip on the rule in
the three most recent occasions we've addressed it. In Madison at Soho,
198 So. 3d at 1113-14, for example, a dispute over unpaid condominium
assessments revolved around the applicability of accord and satisfaction.
(The owner, who was in foreclosure, argued that the condominium
association's acceptance of its $2,412 check constituted an accord and
satisfaction of its unpaid $40,645.70 association debt.) Id. at 1113. Our
court had issued a decision in 2014, St. Croix Lane Trust v. St. Croix at
Pelican Marsh Condominium Ass'n, 144 So. 3d 639 (Fla. 2d DCA 2014),
holding that section 718.116(3), Florida Statutes (2014), never intended
to displace accord and satisfaction for condominium association
payments; but in 2015, the legislature amended that subsection to do
just that. Id. at 1115. Although the amendment was not in effect at the
time of the operative events, and despite the binding precedent of St.
Croix Lane Trust, we concluded in Madison at Soho that the association's
acceptance of the check could not operate as an accord and satisfaction
as a matter of law. Id. at 1113.

                                    19
      The Madison at Soho court began its analysis with an invocation to
Gay: "Florida courts have 'the right and the duty' to consider the
legislature's recently enacted statute clarifying its intent in a prior
version of a statute, which was passed soon after a controversy arose in
the interpretation of that original, pre-amended statute." Id. at 1116
(quoting Ivey v. Chi. Ins. Co., 410 So. 2d 494, 497 (Fla. 1982)). Neither
the presumption against retroactivity nor stare decisis stood in the way
of that "duty": we noted that "when the Florida Supreme Court has had
occasion to simultaneously consider retroactivity and the recent
controversy rule, it has treated the recent controversy rule as an inquiry
that is distinct from retroactive application," and we held that "with the
benefit of hindsight and the legislature's recent clarifying amendment,"
we were free to "revisit our St. Croix Lane Trust decision." Id. at 1116,
1118. Accord and satisfaction was never intended to be available in
these circumstances, as evidenced by the new amendment, for the
legislature "clearly intended for section 718.116(3) to function this way
all along." Id. at 1119. More than that, the amendment not only clarified
the prior legislation's intent—it "abrogated" our holding in St. Croix Lane
Trust altogether. Id.
      But five years later we took a far more circumspect view of the
recent controversy rule in Dean Wish, LLC v. Lee County, 326 So. 3d 840
(Fla. 2d DCA 2021). A landowner had brought a Bert Harris Act claim
against Lee County following the county's rezoning (and decrease of
permissible development density) of the owner's land on Pine Island. Id.
at 842-43. Litigation dragged on for some time, so long that one of the
plaintiff owners retired and sold the property at auction; but it retained
its rights in the lawsuit against the county, which it wished to continue.
Id. at 844. The circuit court found this transfer fatal to the plaintiffs'

                                      20
standing and granted summary judgment in favor of the county. Id. at
844-45. The court construed section 70.001(3)(f), Florida Statutes
(2018), of the Bert Harris Act (which defined "property owner" in the
present tense as "the person who holds legal title to the real property") to
require a plaintiff owner to be the current legal title holder of the affected
property. Id. at 845-46. On appeal, our court agreed. Id. at 849.
      But shortly after we issued our first opinion, the legislature
approved amendments to the statute, including one that stated "[a]
property owner entitled to relief under this section retains such
entitlement to pursue the claim if the property owner filed a claim . . .
but subsequently relinquishes title to the subject real property before the
claim reaches a final resolution." Id. at 850 (alteration in original)
(quoting ch. 2021-203, § 1, Laws of Fla.). On a motion for clarification of
the prior opinion, the Dean Wish court issued a new opinion addressing
the effect of this amendment.6
      A divided panel rejected the former landowner's argument that the
amendment served as legislative clarification of the prior law. Although
we acknowledged courts "may look to a statutory amendment," id. at 850
(emphasis added), if a statute's language is clear, the court was bound to
apply the original statute as it was written: "[W]e are not compelled to
apply the recent controversy rule to unambiguous statutes," id. at 851.
Since the Bert Harris Act's language defining "property owner" was clear,
"we need not look at the 2021 amendment to discern a prior legislative

      6 The prior opinion, Dean Wish, LLC v. Lee County, 46 Fla. L.

Weekly D762 (Fla. 2d DCA Apr. 7, 2021), was withdrawn and superseded
on clarification by 326 So. 3d 840. The newly issued opinion
encompassed the Dean Wish court's initial conclusions as well as
addressing the amendment. See generally Dean Wish, LLC, 326 So. 3d
840.
                                     21
intent." Id. at 850. Furthermore, the Dean Wish majority noted, the
pertinent provisions of the Act had remained unchanged for twenty-six
years, which "weigh[ed] against exercising our discretion to use the 2021
amendment to interpret the prior meaning of the Act's provision." Id. at
852.
       In dissent, Judge Black maintained that the amendment "change[d]
the central issue of this case." Id. at 855. Although the definition of
property owner may have remained unchanged for decades, as he
pointed out, the " '[s]trict adherence' to the rule that the court is
reluctant to consider subsequent legislation when an amendment is
passed long after the original act was made law" is relaxed "when a
subsequent amendment is enacted soon after a controversy regarding a
statute's interpretation has arisen." Id. at 856-57 (alteration in original)
(quoting Dadeland Depot, 945 So. 2d at 1230). According to Judge
Black, "[t]he addition to section 70.001(2) clarifie[d] what ha[d] always
been the case: ownership at the time the property is burdened is critical
to entitlement to relief." Id. at 857.
       If Madison at Soho embraced the "duty" to apply the recent
controversy rule, Dean Wish held it at a discretionary arm's length. Our
most recent decision in Hull sided with Madison at Soho, albeit with less
enthusiasm. As in Madison at Soho, the Hull majority acknowledged a
recent amendment had been enacted in response to the "controversy" of
one of our prior decisions.7 Hull, 349 So. 3d at 461. Because the
legislature had "clarified" section 943.0435(1)(h) by changing "the
sanction" to "a sanction" and then specifically exempting fines from the

       7 It had little choice.
                            The legislature tied a rather sizeable bow
around the point, stating "the opinion in State v. James, 298 So. 3d 90
(Fla. 2d DCA 2020), is contrary to legislative intent." Hull, 349 So. 3d at
463 (quoting ch. 2021-56, § 1, Laws of Fla. (2021)).
                                         22
definition of the word, the majority felt compelled to reexamine our
holding in James. This was necessary, Hull reasoned, "[g]iven our
fundamental mandate to construe statutes so as to 'give effect to
legislative intent.' " Id. at 463. "Recognizing—as we must—the
legislature's abrogation of James and the legislature's express and
specific clarification of its intent, we are bound to conclude that a person
who has failed to pay court costs is not relieved of the requirement to
register and report as a sexual offender." Id. at 465. The majority so
held despite its view that James had correctly construed the prior statute
and despite its misgivings about the recent controversy rule in general.
Id. at 464 n.6.
      Judge Atkinson's dissent in Hull catalogued still more misgivings
with the rule. First, he argued that the statutory text at issue was clear
and unambiguous and that James had properly applied the text's "plain
and ordinary meaning." Id. at 466. Irrespective of any latter legislative
clarification, the Hull panel was bound to follow James because James
was a prior, binding decision of the court. Id. Furthermore, to the extent
the rule "is employed in abrogation of the meaning of the text of a pre-
amendment version of a statute, the rule is inconsistent with our charge
as members of the judicial branch" because it violates the supremacy-of-
text principle of statutory interpretation. Id. at 467. In that same vein,
he observed that the recent controversy rule "can be used to usurp the
authority of the legislature that enacted the text of the applicable version
of the statute and supplant those words with an expression of more
recent legislative will that is potentially in derogation of the text." Id. at
468. Finally, Judge Atkinson questioned how the Hull majority could
apply "an amended version of a criminal statute to an alleged violation
that took place prior to the effective date" of the legislation. Id. at 473.

                                      23
      So in the span of eight years, we have three published decisions
from our court that have yielded two split panels, two panels effectively
decreeing a prior panel's decision dead letter law, one panel construing
the recent controversy rule as discretionary, and another two as quasi-
mandatory. Madison at Soho, Dean Wish, and Hull's respective
applications of the recent controversy rule simply cannot be reconciled.
Either the rule is mandatory or it's discretionary; either its operation
hinges on subsequent legislation's enactment or on prior legislation's
ambiguity; either it truly acts as a tool for clarifying legislative intent or it
is, truly, "retroactivity by another name." Hull, 349 So. 3d at 466.
      The need for us to proceed en banc has become self-evident.
                                       B.
      If the case law discussed above were all there were, we would
simply do our best as an en banc court to try to discern a coherent
thread in these disparate decisional strands and weave our district's
conflicting case law into something a little more cogent. But there's one
thing more we must consider—quite a big thing, actually.
      Between 2020 and 2022 (the same period of time, coincidentally,
that James and Hull were being decided), the Florida Supreme Court
fundamentally changed the framework through which Florida courts
interpret statutes. Mr. Crose has put that change front and center in his
arguments for affirmance in this appeal.
                                       1.
      Traditionally, Florida courts focused their interpretive work on
discerning the "legislative intent" of statutory text. What did the
legislature mean when it enacted a particular piece of legislation? One of
the most frequently cited pronouncements of this approach was set forth
in Holly v. Auld, 450 So. 2d 217, 219 (Fla. 1984):

                                       24
            Florida case law contains a plethora of rules and
      extrinsic aids to guide courts in their efforts to discern
      legislative intent from ambiguously worded statutes.
      However,
            [w]hen the language of the statute is clear and
            unambiguous and conveys a clear and definite
            meaning, there is no occasion for resorting to the
            rules of statutory interpretation and construction;
            the statute must be given its plain and obvious
            meaning.
      A.R. Douglass, Inc. v. McRainey, 102 Fla. 1141, 1144, 137 So.
      157, 159 (1931). See also Carson v. Miller, 370 So. 2d 10 (Fla.
      1979); Ross v. Gore, 48 So. 2d 412 (Fla. 1950). It has also
      been accurately stated that courts of this state are
            without power to construe an unambiguous
            statute in a way which would extend, modify, or
            limit, its express terms or its reasonable and
            obvious implications. To do so would be an
            abrogation of legislative power.
      American Bankers Life Assurance Company of Florida v.
      Williams, 212 So. 2d 777, 778 (Fla. 1st DCA 1968) (emphasis
      added). It is also true that a literal interpretation of the
      language of a statute need not be given when to do so would
      lead to an unreasonable or ridiculous conclusion. Johnson v.
      Presbyterian Homes of Synod of Florida, Inc., 239 So. 2d 256
      (Fla. 1970). Such a departure from the letter of the statute,
      however, "is sanctioned by the courts only when there are
      cogent reasons for believing that the letter [of the law] does
      not accurately disclose the [legislative] intent." State ex rel.
      Hanbury v. Tunnicliffe, 98 Fla. 731, 735, 124 So. 279, 281
      (1929).
(Alterations in original.)
      The "extrinsic aids" available to discern legislative intent were many
and varied, as were the exceptions to construing unambiguous statutes
according to their text—which came to be perceived as a problem with
this approach. Cf. Schoeff v. R.J. Reynolds Tobacco Co., 232 So. 3d 294,
313-14 (Fla. 2017) (Lawson, J., concurring in part and dissenting in part)

                                     25
("Florida's appellate courts have for decades routinely framed the
statutory construction task in general (for all cases) as starting with the
'legislative intent as polestar' maxim. . . . [B]y focusing first on the more
amorphous concept of intent, we are more likely to read into the
language our own subjective experiences and biases—assuming
unintentionally and subconsciously that the Legislature would have
intended the meaning that intuitively strikes us as correct.").
                                      2.
      In 2020, the Florida Supreme Court began to reformulate the
paradigm of statutory interpretation. In Ham v. Portfolio Recovery
Associates, LLC, 308 So. 3d 942, 946-47 (Fla. 2020), the court was called
upon to resolve a conflict between the districts as to whether the
reciprocal fee provision of section 57.105(7), Florida Statutes (2015),
applied to an account stated cause of action on a credit card debt.
Notably, at the outset of its statutory analysis, the Ham court omitted
any mention of Holly or legislative intent; instead, the court framed the
labor of statutory interpretation in much more definitive terms:
            In interpreting the statute, we follow the "supremacy-of-
      text principle"—namely, the principle that "[t]he words of a
      governing text are of paramount concern, and what they
      convey, in their context, is what the text means." Antonin
      Scalia & Bryan A. Garner, Reading Law: The Interpretation of
      Legal Texts 56 (2012). We also adhere to Justice Joseph
      Story's view that "every word employed in [a legal text] is to be
      expounded in its plain, obvious, and common sense, unless
      the context furnishes some ground to control, qualify, or
      enlarge it." Advisory Op. to Governor re Implementation of
      Amendment 4, the Voting Restoration Amendment, 288 So. 3d
      1070, 1078 (Fla. 2020) (quoting Joseph Story, Commentaries
      on the Constitution of the United States 157-58 (1833), quoted
      in Scalia & Garner, Reading Law at 69).

                                     26
           We thus recognize that the goal of interpretation is to
     arrive at a "fair reading" of the text by "determining the
     application of [the] text to given facts on the basis of how a
     reasonable reader, fully competent in the language, would
     have understood the text at the time it was issued." Scalia &
     Garner, Reading Law at 33. This requires a methodical and
     consistent approach involving "faithful reliance upon the
     natural or reasonable meanings of language" and "choosing
     always a meaning that the text will sensibly bear by the fair
     use of language." Frederick J. de Sloovère, Textual
     Interpretation of Statutes, 11 N.Y.U. L.Q. Rev. 538, 541 (1934),
     quoted in Scalia & Garner, Reading Law at 34.
Id. at 946-47 (alterations in original); see also Levy v. Levy, 326 So. 3d
678, 681 (Fla. 2021) (defining and applying supremacy-of-text method of
statutory interpretation).
     Two years after Ham, the court both reemphasized the supremacy-
of-text principle and unequivocally abandoned the legislative intent
approach emblemized in Holly. Addressing a certified question from the
United States Court of Appeals for the Eleventh Circuit, the court in
Conage v. United States, 346 So. 3d 594, 598 (Fla. 2022), held:
            We believe that the Holly principle is misleading and
     outdated. More recently our Court has said that judges must
     "exhaust 'all the textual and structural clues' " that bear on
     the meaning of a disputed text. Alachua County v. Watson,
     333 So. 3d 162, 169 (Fla. 2022) (quoting Niz-Chavez v.
     Garland, ___ U.S. ____, 141 S. Ct. 1474, 1480, 209 L.Ed.2d
     433 (2021)). That is because "[t]he plainness or ambiguity of
     statutory language is determined by reference to the language
     itself, the specific context in which that language is used, and
     the broader context of the statute as a whole." Robinson v.
     Shell Oil Co., 519 U.S. 337, 341, 117 S. Ct. 843, 136 L.Ed.2d
     808 (1997).

           Viewed properly as rules of thumb or guides to
     interpretation, rather than as inflexible rules, the traditional
     canons of statutory interpretation can aid the interpretive
     process from beginning to end (recognizing that some canons,
     like the rule of lenity, by their own terms come into play only
                                     27
      after other interpretive tools have been exhausted). It would
      be a mistake to think that our law of statutory interpretation
      requires interpreters to make a threshold determination of
      whether a term has a "plain" or "clear" meaning in isolation,
      without considering the statutory context and without the aid
      of whatever canons might shed light on the interpretive issues
      in dispute.
(Alteration in original.)
      Since then, the supreme court's marching orders for interpreting
legislation have been clear: to derive the meaning of statutes, we are to
look to the text itself, as understood in its context, not to any purported
intent underlying the text. See, e.g., Tsuji v. Fleet, 366 So. 3d 1020,
1025 (Fla. 2023) ("When we construe statutes, 'our first (and often only)
step . . . is to ask what the Legislature actually said in the statute, based
upon the common meaning of the words used' when the statute was
enacted." (quoting Shepard v. State, 259 So. 3d 701, 705 (Fla. 2018)));
Coates v. R.J. Reynolds Tobacco Co., 365 So. 3d 353, 354 (Fla. 2023) ("In
deciding whether this statute is a prevailing-party statute, we apply the
supremacy-of-the-text principle, recognizing that '[t]he words of a
governing text are of paramount concern, and what they convey, in their
context, is what the text means.' " (quoting Levy, 326 So. 3d at 681));
Lab. Corp. of Am. v. Davis, 339 So. 3d 318, 323 (Fla. 2022) ("In
interpreting a statute, our task is to give effect to the words that the
legislature has employed in the statutory text. 'The words of a governing
text are of paramount concern, and what they convey, in their context, is
what the text means.' " (quoting Ham, 308 So. 3d at 946)).
      It is not hyperbole to observe that Conage's displacement of Holly
and the supreme court's recent embrace of the supremacy-of-text
principle constituted a paradigm shift in Florida law. In the next section,
we carry this evolution in the law forward to consider the case at bar and

                                     28
confront the question of whether the recent controversy rule as a method
for discerning legislative intent retains any operative space in the
supremacy-of-text model of statutory interpretation.
                                       IV.
      Mr. Crose posits that the recent controversy rule and the supremacy-
of-text principle are "completely incompatible." He's correct. We explain
why in this section.
                                       A.
      The recent controversy rule is, root and branch, an offshoot of the
legislative intent approach to ascertaining statutory meaning. Its
pronouncements in the law claim as much. Accord Leftwich, 148 So. 3d
at 83 ("[A] statutory amendment may be relevant to a determination of
the intent behind the previous statute." (emphasis added) (citing Lowry,
473 So. 2d at 1250)); Lowry, 473 So. 2d at 1250 ("[T]he amendments
contained in the pending bill are expressions of prior and continuing
legislative intent." (emphasis added)); Madison at Soho, 198 So. 3d at
1116-17 ("Because we are applying the legislature's amendment, which
clarified the legislature's intent in a prior version of a statute after a recent
controversy, we do not apply retroactivity principles here." (emphasis
added)). As one commentator remarked, applying clarifying amendments
to derive the meaning of prior statutes should "be seen as 'the two
branches work[ing] in partnership to accomplish the legislative agenda.' "
See Pat McDonnel, The Doctrine of Clarifications, 119 Mich. L. Rev. 797,
815 (2021) (alteration in original) (quoting Linda D. Jellum, "Which Is to
Be Master," the Judiciary or the Legislature? When Statutory Directives
Violate Separation of Powers, 56 UCLA L. Rev. 837, 882 (2009)). The
recent controversy rule can only function if one accepts the notion that
legislative meaning (or, if you like, a "legislative agenda") holds some

                                       29
separate telos distinct from the text the legislature had enacted—and
that it is the court's job to discover what that telos is.
      The State, however, will neither bury nor praise the recent
controversy rule. In its supplemental briefing it acknowledges that
courts have at times wielded the rule too forcefully. Nevertheless,
according to the State, a legislative amendment enacted shortly after a
controversy arises may still be "probative (though not dispositive) of what
the text meant all along," not unlike "an amicus brief written on behalf of
the House and Senate" in a pending case. As the State sees it, "this one-
factor-among-many approach to the recent controversy rule is a proper
'tool' in the textualist's toolkit."
      How can that be? You can use a hammer for all sorts of things,
but it's meant for hammering. When the job at hand no longer calls for
hammering, you shouldn't reach for that tool. A court using an atextual,
intent-centric tool in a supremacy-of-text analysis would be like a
homeowner trying to hammer a lightbulb into a socket to gain more
illumination.
      The courts fashioned this common law tool for one purpose: to
break through statutory text and discover the hidden legislative intent
beneath a statute's words.8 The recent controversy rule doesn't shed
light on statutory context. It isn't a rule of grammar. And it's not a
surrogate for a dictionary. While we recognize that the Florida Supreme
Court "does not intentionally overrule itself sub silentio," F.B. v. State,
852 So. 2d 226, 228 (Fla. 2003) (quoting Puryear v. State, 810 So. 2d
901, 905 (Fla. 2002)), when the court fundamentally changes a first-
order, long-standing paradigm of widespread application, some of its

      8 Indeed, the recent controversy rule could be the exemplar par

excellence of an intent-centric tool of construction.
                                       30
prior case law may fall by the wayside. We believe that is what has
happened to the recent controversy rule.
     Guided by the Florida Supreme Court's pronouncements in Ham
and Conage, we hold that consulting subsequent legislative amendments
in response to recent controversies is no longer a viable basis for
construing the meaning of a statute.9 We recede from Hull and Madison
at Soho to the extent they held to the contrary.
                                     B.
     Having so held, we can turn to the merits of Mr. Crose's case. As
we observed at the outset, Mr. Crose's circumstances, as well as his
argument about the proper interpretation of the preamendment version
of section 943.0435, are virtually indistinguishable from the defendant's
in James. Since our entire basis for declaring James "abrogated" in Hull
was the recent controversy rule—which we've now determined is
inconsistent with a supremacy-of-text approach to statutory
interpretation—we are free to construe Mr. Crose's arguments in
accordance with James' holding. The only question we need now address
is whether James was a felicitous application of the supremacy-of-text
principle to section 943.0435.
                                     1.
     We think it was. Again, the prior, applicable version of the statute
tethered sex offender registration to completion of "the sanction imposed"
and then went on to state that "a sanction . . . includes, but is not
limited to, a fine, probation, community control, parole, conditional

     9 We would note that the supreme court itself has questioned the

continued viability of the recent controversy rule. See Dadeland Depot,
945 So. 2d at 1230 ("However, this tool of statutory construction was
called into question somewhat by our opinion in Knowles v. Beverley-
Enterprises-Florida, Inc., 898 So. 2d 1 (Fla. 2004).").
                                     31
release, control release, or incarceration in a state prison, federal prison,
private correctional facility, or local detention facility."
§ 943.0435(1)(h)1.a.II., Fla. Stat. (2017).
      The use of the definite article "the," in this context, clearly and
unambiguously indicated a holistic, collective meaning for "sanction."
Release from "the sanction imposed" meant just that: release from "the
sanction" the State had imposed, not just a particular piece of that
sanction. See Nielsen v. Preap, 139 S. Ct. 954, 965 (2019) ("Here
grammar and usage establish that 'the' is 'a function word . . .
indicat[ing] that a following noun or noun equivalent is definite or has
been previously specified by context.' " (alterations in original) (quoting
Merriam-Webster's Collegiate Dictionary 1294 (11th ed. 2005))); Covey v.
Shaffer, 277 So. 3d 694, 696-97 (Fla. 2d DCA 2019) ("The indefinite
article a has an accepted sense of 'any,' while the definite article, the,
used before a noun specifies a definite and specific noun, as opposed to
any member of a class." (quoting Myers v. State, 696 So. 2d 893, 900
(Fla. 4th DCA 1997))). That construction is not only evinced by the
commonly understood meaning of "the" when applied to a term with
multiple aspects; it is confirmed textually by the remainder of the
statute, which switches to the indefinite article "a" to list the various
constituent components a "sanction" may comprise. See Famiglio v.
Famiglio, 279 So. 3d 736, 741 (Fla. 2d DCA 2019) ("The purpose of the
indefinite article is to indicate a noun that is, in some way, variable,
unidentified, or unspecified." (citing Retreat at Port of Islands, LLC v. Port
of Islands Resort Hotel Condo. Ass'n, 181 So. 3d 531, 533 (Fla. 2d DCA
2015))).
      Moreover, James' interpretation avoided the ambiguity an
alternative construction would have foisted: if registration is required

                                       32
following release from any part of "the sanction," which of the several and
distinct sanctions specifically defined in the statute becomes "the
sanction" for purposes of the registration requirement? Cf. State v.
Hobbs, 974 So. 2d 1119, 1121 (Fla. 5th DCA 2008) (noting that statutory
construction canons "should only come into play when it is necessary to
construe an ambiguous statute, not to create an ambiguity in a clearly
worded statute" (citing Jacobo v. Bd. of Trs. of Miami Police, 788 So. 2d
362, 363 (Fla. 3d DCA 2001))). Finally, as James observed, the
legislature had, elsewhere, enacted an automatic designation provision in
the Sexual Predator Act, but not in section 943.0435. See James, 298
So. 3d at 93. "[W]hen the legislature has included a provision in one
statute, but omitted it in an analogous statute, courts should not read it
into the statute from which it has been excluded." Id. (citing Mesen v.
State, 271 So. 3d 164, 169 (Fla. 2d DCA 2019)).
     Is James' construction consistent with what a subsequent
legislature declared its predecessor had originally intended? Apparently
not. It is, however, entirely consistent with the actual words that prior
legislature enacted.10 Like the Florida Supreme Court, in this case "we
need only resort to what Justice Thomas has described as the 'one,
cardinal canon [of construction] before all others'—that is, we 'presume
that a legislature says in a statute what it means and means in a statute
what it says there.' " Page v. Deutsche Bank Tr. Co. Ams., 308 So. 3d
953, 958 (Fla. 2020) (quoting Conn. Nat'l Bank v. Germain, 503 U.S. 249,
253-54 (1992)). The prior legislature had tied sex offender registration to
a defendant's release from "the sanction imposed," not "a sanction" or

     10 The State concedes that this is not one of those exceptionally

rare circumstances where the absurdity doctrine compels a particular
construction of the statute.
                                    33
"any sanction." Because that is what the words of the statute conveyed,
that is what the text of the statute meant. See Ham, 308 So. 3d at 946;
Allstate Mortg. Corp. of Fla. v. Strasser, 286 So. 2d 201, 202-03 (Fla.
1973) (observing that the legislature "is presumed to know the meanings
of words and rules of grammar" (citing State ex rel. Hanbury v.
Tunnicliffe, 124 So. 279 (Fla. 1929))).
                                       2.
      In its supplemental briefing, the State argues that when section
943.0435(1)(h) is read within a broader context of the purpose of sex
offender statutes and alongside other statutory registration
requirements, the operative term "sexual offender" takes on a different,
broader meaning than what the text of section 943.0435(1)(h) actually
states. "[T]ext and context establish that 'the sanction' . . . is a generic
phrase that refers to any sanction from which the offenders has been
released," according to the State. (Emphasis added.) We disagree for the
following five reasons.
      First and foremost, as we've already explained, "the" does not
usually mean the same thing as "any" or "a." Definite articles and
indefinite articles typically connote different meanings, and they serve
very different communicative functions. See, e.g., Paul W. Lovinger, The
Penguin Dictionary of American English Usage and Style 1, 426 (2000) ("A
or an goes before a word or phrase denoting a person or thing (noun) but
not a specific one. . . . The definite article, the, . . . usually introduces a
particular thing or individual group, one that was mentioned before or
whose existence is known or presumed to be known."). While context is
always important and can often provide clarification, it's not a talisman
that can be invoked to transform the ordinary functions of articles in
English grammar.

                                       34
      Second, it must be observed that section 943.0435(1)(h)1 is a
definitional statute. It so indicates right at the beginning of the
subsection: " 'Sexual offender' means . . . ." For purposes of the crime of
"sexual offenders" failing to register, we would expect to find the
boundaries of the defined term "sexual offender" within the boundaries of
the section that defines that term. See generally Fla. Ins. Guar. Ass'n v.
Bernard, 140 So. 3d 1023, 1030 (Fla. 1st DCA 2014) ("[T]he definition of
a term in the definitional section of a statute controls the construction of
that term wherever it appears in the statute." (quoting Durish v.
Channelview Bank, 809 S.W.2d 273, 276 (Tex. Ct. App. 1991))); Fla. Dep't
of Banking & Fin. v. Bd. of Governors of Fed. Res. Sys., 800 F.2d 1534,
1536 (11th Cir. 1986) ("It is an elementary precept of statutory
construction that the definition of a term in the definitional section of a
statute controls the construction of that term wherever it appears
throughout the statute."). We should be exceedingly wary about straying
beyond a statute's definitional section, notwithstanding the State's
invitation to look elsewhere. Cf. Scalia & Garner, Reading Law at 228 ("It
is very rare that a defined meaning can be replaced with another
permissible meaning of the word on the basis of other textual
indications; the definition is virtually conclusive."); Singer, Statutes and
Statutory Construction 132 (7th ed. 2009) ("When a legislature defines the
language it uses, its definition is binding upon the court even though the
definition does not coincide with the ordinary meaning of the words.").
      Third, it seems to us what the State would call legislative "context"
ends up looking a great deal like "legislative intent." For example, we are
told context requires us to consider various studies on recidivism, federal
subsidy reporting requirements, and the filings of law enforcement
agencies in response to James. These, according to the State, reveal "the

                                     35
purposes of the law," which happen to align with the State's construction
of section 943.0435(1)(h)1. But garlanding unwritten "purposes" over
written statutory text is just another way of saying, "what the legislature
really meant was . . . ."—and that kind of subtextual approach (in the
truest sense of the word) is anathema to the supremacy-of-text rule.
Accord Tsuji, 366 So. 3d at 1025; Conage, 346 So. 3d at 598; Coates, 365
So. 3d at 354; Davis, 339 So. 3d at 323.
      Fourth, even if section 943.0435(1)(h)1 were read in a way that "the
sanction imposed" wasn't a defined term (though it clearly is), the State's
argument would have us ignore the plain and ordinary meaning of this
term. See Tsuji, 366 So. 3d at 1028 ("Absent a legislatively supplied
definition, we give the word 'liable' its 'plain and ordinary meaning' at the
time of the statute's enactment, and we often look to contemporaneous
dictionaries for evidence of that meaning." (citing Sch. Bd. of Palm Beach
Cnty. v. Survivors Charter Schs., Inc., 3 So. 3d 1220, 1233 (Fla. 2009)));
Westpark Preserve Homeowners Ass'n v. Pulte Home Corp., 365 So. 3d
391, 395 (Fla. 2d DCA 2023) ("When the legislature has not defined a
term in the statute, courts may 'look to the dictionary in order to
ascertain the plain and ordinary meaning of the term.' " (quoting Debaun
v. State, 213 So. 3d 747, 751 (Fla. 2017))). In 1997, when this statute
was enacted, Black's defined "the" as an article that "particularizes the
subject which it precedes and is word of limitation as opposed to
indefinite or generalizing force 'a' or 'an' ", "sanction" was defined broadly
to mean "[p]enalty or other mechanism of enforcement used to provide
incentives for obedience with the law", and "impose" meant "to levy or
exact as by authority." See The, Black's Law Dictionary (6th ed. 1994).
Thus, by the lights of the foremost legal dictionary's definitions, "the
sanction imposed" means, as we said in James: the (not any)

                                     36
particularized (not indeterminate from among a nonexhaustive list)
penalty (not just incarceration) exacted by the authority of a criminal
court.11
     We can check this plain and ordinary definition against what the
proverbial man or woman "on the street" would say. If he or she were
told that a criminal defendant had been sentenced to prison, probation,
and the payment of a fine and that proverbial person were then asked to
describe what was "the sanction imposed" on that defendant, they would
respond that the defendant had been imprisoned, was required to serve
probation, and had to pay a fine. If that person were then told, no,
actually "the sanction" was only the incarceration, they would probably
wonder whether they'd been asked a trick question. Cf. Pell v. State, 122
So. 110, 113 (Fla. 1929) (construing criminal statute and observing that
"[w]hen we come down to the sensible use of plain everyday language,
such as the man on the street (who often becomes the man on the jury)

     11 The State's suggestion that the second sentence of section

943.0435(1)(h)1.a.(II)—"For purposes of sub-sub-subparagraph (I), a
sanction imposed in this state or in any other jurisdiction includes, but
is not limited to, a fine, probation, community control," etc.—"can
effectively be superimposed into the first sentence without changing the
first's meaning" amounts to a rather unsubtle linguistic sleight-of-hand,
one that would not clarify, but radically transform the text we're trying to
construe.
       Besides which, when it says "[f]or purposes of sub-sub-
subparagraph (I)," the second sentence is specifically pointing to a
different sub-sub-subparagraph altogether, not the preceding sentence,
and its nonexhaustive list of disjunctive potential penalties would be the
antitheses of the particularizing use of the preceding sentence's definite
article and meaning. The second sentence of (1)(h)1.a.(II) simply
illustrates the kind of potential "sanctions" that could qualify for sexual
offender registration; it leaves the work of who must register and when to
the preceding sentence. That is how these two sentences are properly
construed together.
                                    37
uses and understands, and such as is used in our statute defining the
different degrees of homicide . . . we lose nothing of substance, pith, or
dignity, while we gain much in directness, lucidity, and simplicity of
statement"); United States v. Pate, No. 20-10545, 2023 WL 6618405, * 3
(11th Cir. Oct. 11, 2023) ("[W]e 'ask how a reasonable person, conversant
with the relevant social and linguistic conventions, would read the text in
context.' " (quoting John F. Manning, The Absurdity Doctrine, 116 Harv.
L. Rev. 2387, 2392-93 (2003))).
     Fifth and finally, if we were inclined to accept the State's
construction of "the sanction imposed," it would, at most, amount to a
valid, competing interpretation of the statute's text. We would then find
ourselves with a "[r]un-of-the-mill ambiguity regarding particular
applications of a criminal statute," Martin v. State, 259 So. 3d 733, 741
(Fla. 2018)—between the State's approach and James'—and the rule of
lenity would compel us to follow James as the more lenient application.
See § 775.021(1), Fla. Stat. (2019) ("The provisions of this code and
offenses defined by other statutes shall be strictly construed; when the
language is susceptible of differing constructions, it shall be construed
most favorably to the accused."); Cleveland v. United States, 531 U.S. 12,
25 (2000) ("[W]e have instructed that 'ambiguity concerning the ambit of
criminal statutes should be resolved in favor of lenity.' " (quoting Rewis v.
United States, 401 U.S. 808, 812 (1971))); J.J. v. State, 181 So. 3d 522,
525 (Fla. 2d DCA 2015) ("It is a fundamental principle of Florida
jurisprudence that penal statutes must be strictly construed.").
                                     3.
     Mr. Crose, who was still completing the probation portion of his
criminal sanction, wasn't required to register as a sex offender at the
time of his alleged offense under the operative, preamendment version of

                                     38
section 943.0435. We, therefore, affirm the order of the circuit court
dismissing this charge against him.
                                        V.
      As we acknowledged earlier, our holding today presupposes that
the supremacy-of-text principle has supplanted the recent controversy
rule. But if we're mistaken, if the recent controversy rule somehow
retains some utility for construing the meaning of statutory text, we
would still need to contend with several concerns this case raises. We
will canvass those concerns in the following subsections and explain why
these problems likewise preclude us from applying the amended statute's
purported clarification to the case at bar.
                                        A.
      This is a criminal case. Both the federal and state constitutions
generally forbid the ex post facto application of criminal laws. See art. I,
§ 9, cl. 3, U.S. Const. ("No Bill of Attainder or ex post facto Law shall be
passed."); art. I, § 10, cl. 1, U.S. Const. ("No State shall . . . pass any . . .
ex post facto law . . . ."); art. I, § 10, Fla. Const. ("No bill of attainder, ex
post facto law or law impairing the obligation of contracts shall be
passed."); see also Collins v. Youngblood, 497 U.S. 37, 43 (1990)
("Legislatures may not retroactively alter the definition of crimes or
increase the punishment for criminal acts."); Lescher v. Fla. Dep't of
Highway Safety & Motor Vehicles, 985 So. 2d 1078, 1081 (Fla. 2008)
("Both the United States and Florida Constitutions prohibit ex post facto
laws."); Rodriguez v. State, 380 So. 2d 1123, 1123-24 (Fla. 2d DCA 1980)
("An ex post facto law, which is prohibited by [a]rticle I, [s]ection 10,
Florida Constitution, is defined as '[o]ne which, in its operation, makes
that criminal which was not so at the time the action was performed, of
which increases the punishment, or, in short, which in relation to the

                                        39
offense or its consequences alters the situation of a party to his
disadvantage.' " (alteration in original) (quoting Higginbotham v. State,
101 So. 233, 235 (Fla. 1924))).12

      12 As Mr. Crose points out, there is a technical distinction in the

constitutional analysis of retroactive legislation versus retroactive judicial
decision-making. The former falls under the ex post facto clause, while
the latter is governed by the due process provision of the Fifth
Amendment, as applied to the States through the Fourteenth
Amendment. As the Supreme Court explained:
             The Ex Post Facto Clause is a limitation upon the
      powers of the Legislature, see Calder v. Bull, 3 Dall. 386, 1
      L.Ed. 648 (1798), and does not of its own force apply to the
      Judicial branch of government. Frank v. Mangum, 237 U.S.
      309, 344, 35 S.Ct. 582, 593, 59 L.Ed. 969 (1915). But the
      principle on which the Clause is based the notion that
      persons have a right to fair warning of that conduct which
      will give rise to criminal penalties is fundamental to our
      concept of constitutional liberty. See United States v. Harriss,
      347 U.S. 612, 617, 74 S. Ct. 808, 811, 98 L. Ed. 989 (1954);
      Lanzetta v. New Jersey, 306 U.S. 451, 453, 59 S. Ct. 618,
      619, 83 L.Ed. 888 (1939). As such, that right is protected
      against judicial action by the Due Process Clause of the Fifth
      Amendment.
See Marks, 430 U.S. at 191-92.
      Florida's recent controversy rule, however, is arguably a creature of
both the legislature and the judiciary's making. After all, absent the
impetus of a legislative amendment enacted in response to a controversy,
a court can't invoke this tool of statutory construction; and the case at
bar (in which the amendment at issue explicitly referenced our James
decision, which the Hull panel then cited) exemplifies just how enmeshed
the two branches can become when the rule is invoked.
      Which constitutional provision the recent controversy rule
implicates might pose an interesting question, but we need not linger too
long on it. In the end, the two analyses—whether a legislature's
enactment of a retrospective law violates the ex post facto clause or
whether a court's retrospective application of legislation violates the due
process clause—both revolve around the same center of gravity: a lack of
fair notice. See Lynce, 519 U.S. at 441 ("We have explained that such
[retroactive] laws implicate the central concerns of the Ex Post Facto
                                     40
      It is true, as we discussed in section III(A), that Florida courts have
applied the recent controversy rule to construe criminal statutes
notwithstanding ex post facto objections. See, e.g., Leftwich, 148 So. 3d
at 84; Hull, 349 So. 3d at 464; Burgos, 765 So. 2d at 968. More often
than not, the constitutional concern was assuaged by the assurance that
all the court was doing was clarifying a criminal statute's intended
meaning, not enlarging its operative scope.
      Now one could argue (and some have) that that justification is
nothing more than a fig leaf covering a retroactive application of a
criminal statute. See, e.g., Leftwich, 148 So. 3d at 89 (Quince, J.,
dissenting) (maintaining that the statutory amendment at issue was
"more than a mere clarification of the legislature's original intent," that
"[t]his language supports the conclusion that the amendment expanded
the exception to all habitual offenders," and that "[t]his expansion of the
exceptions contained in the original statute results in the 1992
amendment being applied retroactively to Leftwich"); Hull, 349 So. 3d at
466 (Atkinson, J., dissenting) ("In instances where the recent controversy
rule is applied to give effect to a legislature's subsequent pronouncement
of intent that is not supported by the version of the statute that was in

Clause: 'the lack of fair notice and governmental restraint when the
legislature increases punishment beyond what was prescribed when the
crime was consummated.' " (quoting Weaver v. Graham, 450 U.S. 24, 30
(1981))); Bouie v. City of Columbia, 378 U.S. 347, 353-54 (1964) ("[A]n
unforeseeable judicial enlargement of a criminal statute, applied
retroactively, operates precisely like an ex post facto law, such as Art. I, s
10, of the Constitution forbids. . . . If a state legislature is barred by the
Ex Post Facto Clause from passing such a law, it must follow that a State
Supreme Court is barred by the Due Process Clause from achieving
precisely the same result by judicial construction." (emphasis added)).
For convenient shorthand, we will refer to ex post facto application in
this section in its broader sense to encompass the more general fair
notice implications of due process.
                                     41
effect at the time of its alleged violation, the rule is merely retroactivity by
another name."). Regardless of how substantive the cover of
"clarification" ever was, in the advent of Ham and Conage, a post hoc,
extratextual source such as a subsequent amendment to a criminal
statute, can no longer be a viable tool to derive textual meaning. Not
when we are supposed to "strive to determine the text's objective
meaning through 'the application of [the] text to given facts on the basis
of how a reasonable reader, fully competent in the language, would have
understood the text at the time it was issued.' " Levy, 326 So. 3d at 681
(alteration in original) (emphasis added) (quoting Antonin Scalia & Bryan
A. Garner, Reading Law at 33); see also Niz-Chavez v. Garland, 141
S. Ct. 1474, 1480 (2021) ("When called on to resolve a dispute over a
statute's meaning, this Court normally seeks to afford the law's terms
their ordinary meaning at the time Congress adopted them." (citing Wis.
Cent. Ltd. v. United States, 138 S. Ct. 2067 (2018))); Kleparek, 634 So. 2d
at 1148 ("[I]t has been wisely observed by a judge that a legislature—not
identical in body as a previous one—might be logically hard pressed to
say what the earlier legislature intended."). If the only way the recent
controversy rule withstands ex post facto scrutiny in a criminal case is
by acting as a means of clarifying intent and if that function has
effectively been withdrawn—as we believe it has—then construing the
text of a statute according to the words of the statute's future
amendments winds up being "retroactivity by another name." See Hull,
349 So. 3d at 466 (Atkinson, J., dissenting).
      Mr. Crose's case illustrates this point. Under the prior text of
section 943.0435, he was not required to register as a sex offender—and,
correspondingly, could not be guilty of the third-degree felony of failing to
do so—until he was released from "the sanction imposed" in his prior

                                      42
sentence, a sanction that included probation. He could, however, be
guilty of this charge if the text of the statute had required his registration
following the release of the incarcerative portion of his criminal sanction,
which is precisely what the amendments to section 943.0435 effectuated.
To construe the preamendment statute in the manner the State suggests
(that is, to align the preamended version's operation with the
postamended version's text) violates the cardinal prohibition of ex post
facto criminal laws: it criminalizes what had been noncriminal conduct
after-the-fact. See Carmell v. Texas, 529 U.S. 513, 524-25 (2000).
                                      B.
      If a subsequent legislature's enactments can somehow inform a
supremacy-of-text's construction of a prior legislature's laws, we would
also have to contend with a lurking separation of powers issue. And here
as well, the case at bar brings that dilemma into its fullest light.
      Article II, section 3 of the Florida Constitution provides: "The
powers of the state government shall be divided into legislative, executive
and judicial branches. No person belonging to one branch shall exercise
any powers appertaining to either of the other branches expressly
provided herein." "[T]he Florida Constitution imposes a 'strict' separation
of powers requirement that applies just as vigorously to the judicial
branch as it does to the other two branches of government." Citizens for
Strong Schs., Inc. v. Fla. State Bd. of Educ., 232 So. 3d 1163, 1170 (Fla.
1st DCA 2017) (quoting State v. Cotton, 769 So. 2d 345, 352 (Fla. 2000)).
While there are occasions when the dividing lines between the branches'
powers may seem blurred, basic judicial interpretation of the law is not
one of them.
      "It is emphatically the province and the duty of the judicial
department to say what the law is." Marbury v. Madison, 5 U.S. 137, 177

                                     43
(1803). There can be no question but that the interpretation of legislative
acts in disputed cases lies at the very core of the judiciary's duty. See,
e.g., Bush v. Schiavo, 885 So. 2d 321, 330 (Fla. 2004) ("Under the
express separation of powers provision in our state constitution, 'the
judiciary is a coequal branch of the Florida government vested with the
sole authority to exercise the judicial power' . . . ." (quoting Chiles v.
Child. A, B, C, D, E, & F, 589 So. 2d 260, 268-69 (Fla. 1991))); Fla. Dep't
of Revenue v. Fla. Mun. Power Agency, 789 So. 2d 320, 324 (Fla. 2001)
("A court's function is to interpret statutes as they are written and give
effect to each word in the statute."); Getzen v. Sumter County, 103 So.
104, 105 (Fla. 1925) ("In order that the state government may be one of
legal regulations lawfully administered, the Constitution provides for a
law enacting power, a law executing power, and also for a law
interpreting power, i.e., the judicial power."). It is equally inarguable that
that function encompasses the power of superior tribunals to review the
rulings of lower courts within their jurisdiction—a power expressly
conferred to those tribunals by our constitution. See art. V, § 3(b)(3),
Fla. Const. ("The supreme court . . . may review any decision of a district
court of appeal that expressly declares valid a state statute, or that
expressly construes a provision of the state or federal constitution, or
that expressly affects a class of constitutional or state officers, or that
expressly and directly conflicts with a decision of another district court of
appeal or of the supreme court on the same question of law."); § 4(b)(1)
("District courts of appeal shall have jurisdiction to hear appeals, that
may be taken as a matter of right, from final judgments or orders of trial
courts . . . not directly appealable to the supreme court or a circuit
court.").

                                      44
      When implemented, though, the recent controversy rule shunts
that interpretive power over to the legislative branch. For it both
facilitates and effectuates an alternative form of judicial review by the
legislature. Of course, the legislature is generally free to change the law
in such a way that its prospective application will contravene a prior
judicial interpretation of the prior law. But the recent controversy rule,
through the guise of clarification, accomplishes much more than that.
      The closing lines of Madison at Soho and Hull give away the game.
In both cases, we deemed a legislative amendment to have "abrogated"
one of our prior holdings. See Hull, 349 So. 3d at 465 ("Recognizing—as
we must—the legislature's abrogation of James . . . ."); Madison at Soho,
198 So. 3d at 1119 ("The legislature abrogated our interpretation of
section 718.116(3) in St. Croix Lane Trust."). The effect of those
"abrogations," however, was completely retrospective; otherwise binding
precedent was swept aside, as if it never existed, so that a panel could
reconsider and then reconstrue the interpretation of a statute under the
guidance of a legislative session that didn't exist when the operative
statute was in effect. Cf. Hull, 349 So. 3d at 464 n.6 ("[W]e, too, find the
recent controversy rule—by which a subsequent legislature's amendment
somehow slips free from the bonds of time to recalibrate the meaning of
the words that a prior legislature enacted—both puzzling in its
application and potentially troubling in its effect.").
      In essence, the recent controversy rule enables the legislature (or,
more accurately, one particular legislative session) to act as a surrogate
court of review. That is not a role for the legislature to assume in the
system established under our state constitution. See art. V, § 3(b)(3),
Fla. Const. If the James panel's interpretation of the prior version of
section 943.0435 was incorrect, it would be the function of this court

                                      45
proceeding en banc or the Florida Supreme Court to declare it so. That
would be an interpretive correction, and interpretation of the law, as
we've already discussed, is uniquely vested to the judiciary under our
constitution. Cf. Trs. of Internal Imp. Fund v. Bailey, 10 Fla. 238, 251
(1863) (observing that the legislature's "province is to set the machinery
of the rights of property in motion, but they have not the power of
determining those rights" and that "[t]he latter is left to the judiciary,
who are independent of the other branches of the government").13
                                      C.
      It could be argued that the legislature's assumption of a reviewing
court's role under the aegis of the recent controversy rule passes
separation of powers muster because the rule is only ever applied by a
court. Assuming that's true (by ignoring the legislature's essential role in
the recent controversy rule's operation), we would then have to contend
with yet another problem this rule raises. When a panel of an appellate
court invokes the rule to reassess a prior panel's opinion in light of a
legislative amendment (as this court did in Hull and Madison at Soho), we
have a situation where one three-judge panel is effectively overruling
another.
      It is well settled in Florida that a three-judge panel of a district
court of appeal is not at liberty to overrule or recede from a prior panel's

      13 Apart from the legislative intrusion into judicial review, the

recent controversy rule may also encourage a reciprocal incursion by the
courts into the domain of the legislature. As Judge Atkinson observed,
"[b]y applying something that was not the duly enacted law of the land at
the time of the commission of the alleged crime, this court—even if at the
urging of a subsequent legislature—would be making law, a law that did
not exist at the time of the alleged offense." Hull, 349 So. 3d at 471
(Atkinson, J., dissenting); see also Brown v. State, 358 So. 2d 16, 20 (Fla.
1978) ("The Florida Constitution requires a certain precision defined by
the legislature, not legislation articulated by the judiciary.").
                                      46
controlling decision on the same point of law. See, e.g., Wood v. Fraser,
677 So. 2d 15, 18 (Fla. 2d DCA 1996) ("More important, because Arango
was the opinion of a three-judge panel, that panel, consistent with the
long-standing policy of this court, would not have receded from Moore,
even if it were inclined to do so, without first seeking en banc
consideration from the full court pursuant to Florida Rule of Appellate
Procedure 9.331."); Nat'l Med. Imaging, LLC v. Lyon Fin. Servs., Inc., 347
So. 3d 63, 64 n.2 (Fla. 3d DCA 2020) ("Unless the Florida Supreme Court
overrules a prior panel's decision, a subsequent panel of this Court is not
free to disregard, and must follow, precedent of the prior panel."). The
recent controversy rule has, at times, elided this foundational principle of
how our appellate courts are supposed to work. See, e.g., Hull, 349 So.
3d 459; Madison at Soho II, 198 So. 3d 1111.
     We've found no Florida appellate court opinion that has ever
acknowledged, much less reconciled, this awkward facet of the recent
controversy rule's application. The "abrogation" discussed in the prior
subsection doesn't wave the problem away. If the legislature can't act as
a court of review, it follows that the only organic authority for abrogating
a panel decision under the recent controversy rule is another panel's
decision. Having considered the rule's effect more fully, we are now of
the mind that if the recent controversy rule retains any vitality in the
advent of Ham and Conage (and, again, we don't think it does), and if the
rule's application in a case would effectively reverse, recede from, or
declare a prior panel's decision abrogated on the same point of law, then
only the court sitting en banc can apply the rule. For this reason as well,
we would recede from Hull and Madison at Soho insofar as they
represented an improper arrogation of en banc authority by a three-judge
panel of the court.

                                     47
                                     VI.
     We hold that the recent controversy rule—in which a court
considers subsequent legislative amendments to construe the meaning of
prior statutory text—is no longer a viable method of construing statutory
text in the wake of the Florida Supreme Court's decisions in Ham and
Conage.14 We recede from Hull and Madison at Soho to the extent that
both of those decisions rested on the recent controversy rule's authority.

     14 In his concurring in result only opinion, our colleague Judge

Atkinson now chides us for addressing the arguments Mr. Crose and the
State have made in these en banc proceedings while laboring to sketch
out a novel proposition about "methodological precedent" no one in this
litigation has ever suggested. See Miami-Dade County v. Omnipoint
Holdings, Inc., 863 So. 2d 195, 200 (Fla. 2003) ("Ordinarily an appellate
court does not give consideration to issues not raised below." (quoting
Hormel v. Helvering, 312 U.S. 552, 556 (1941))). According to our
colleague, Conage wasn't especially remarkable because supreme court
decisions in the two years prior to its issuance had already begun citing
the supremacy-of-text principle when interpreting statutes. We've
already discussed, at length, the evolution in the case law leading up to
Conage. In our view, Judge Atkinson's assessment of Conage fails to
reckon with what Conage said and what it did.
       Holly, 450 So. 2d 217, was a seminal case of statutory
interpretation in Florida law for nearly forty years, having been cited,
applied, and followed in over 600 published opinions before Conage's
issuance. Conage did not simply clarify Holly (as Judge Atkinson's
opinion seems to imply). Conage abrogated the most oft-cited features of
Holly's holding. See Conage, 346 So. 3d at 598 ("[W]e address a
threshold issue about Florida's law of statutory interpretation. The
United States encourages us to use an approach that is often linked to a
passage from our Court's decision in Holly v. Auld, 450 So. 2d 217, 219
(Fla. 1984) . . . . We believe that the Holly principle is misleading and
outdated. . . . It would be a mistake to think that our law of statutory
interpretation requires interpreters to make a threshold determination of
whether a term has a 'plain' or 'clear' meaning in isolation . . . ."). Thus,
our analysis of Conage's displacement of Holly is not an "artificial line of
demarcation"; it is a reflection of the fact that arguments and issues do
not come before our court in an ether, but at temporal points in the law's
evolution. Holly's pronouncements that a statute's text only serves to
                                     48
     We return to the textual interpretation James gave the prior version
of section 943.0435. At the time of Mr. Crose's alleged offense, he was
required to register as a sex offender following his release from "the
sanction imposed," not just a single part of the sanction. Because
probation was part of Mr. Crose's sanction and he was still serving that
probation at the time of his alleged offense, the circuit court correctly
dismissed this charge. See James, 298 So. 3d at 94.
     Having so held, we acknowledge that our decision today calls into
question the continued effect of certain portions of supreme court
precedents, including Lowry, Lanier, and Leftwich. We, therefore, certify
the following question of great public importance to the Florida Supreme
Court pursuant to Florida Rule of Appellate Procedure 9.030(a)(2)(A)(v):
     CAN A COURT CONSIDER A CRIMINAL STATUTE'S
     SUBSEQUENT AMENDMENTS TO CLARIFY A PRIOR
     VERSION OF THE CRIMINAL STATUTE CONSISTENT WITH
     THE SUPREMACY-OF-TEXT PRINCIPLE SET FORTH IN HAM
     V. PORTFOLIO RECOVERY ASSOCIATES, 308 SO. 3D 942,
     946 (FLA. 2020), AND CONAGE V. UNITED STATES, 346 SO.
     3D 594 (FLA. 2022)?
     We have answered the question in the negative and affirm the order
below accordingly.
     Affirmed; question certified.

SLEET, C.J., and NORTHCUTT, CASANUEVA, KHOUZAM, ROTHSTEIN-
YOUAKIM, and LABRIT, JJ., Concur.
SILBERMAN, J., Concurs specially with an opinion in which LABRIT, J.,
Concurs.

illuminate a separate, subtextual intention and that, before relying on
canons of interpretation, statutes must be examined for ambiguity have
now been formally displaced. We have endeavored to resolve the issues
that have been argued in this proceeding, as best as we are able, in the
light of that displacement.
                                     49
LaROSE, J., Concurs in result only with an opinion in which KELLY,
VILLANTI, MORRIS, BLACK, and SMITH, JJ., Concur.
ATKINSON, J., Concurs in result only with opinion.

SILBERMAN, J., Specially concurring.
     I fully concur with the majority opinion and write solely to expand
on footnote 10, which mentions the State's concession that the absurdity
doctrine does not apply here. In our order granting the State's motion to
allow en banc briefing, we directed the parties to address "[w]hether the
'absurdity doctrine' applies and compels a particular outcome. See State
v. Lewars, 259 So. 3d 793, 800 (Fla. 2018); Maddox v. State, 923 So. 2d
442, 447-48, 453 (Fla. 2006)."
     In Maddox, the Florida Supreme Court explained the absurdity
doctrine, stating that "although the strict meaning of the words in the
abstract employed by the Legislature when it drafted" a statute may
support a particular outcome, "such a sterile literal interpretation should
not be adhered to when it would lead to absurd results." 923 So. 2d at
448; see also Raik v. Dep't of Legal Affs., Bureau of Victim Comp., 344 So.
3d 540, 549 (Fla. 1st DCA 2022) ("In certain circumstances, the
absurdity doctrine may be used to justify departures from the general
rule that courts will apply a statute's plain language." (quoting State v.
Hackley, 95 So. 3d 92, 95 (Fla. 2012))). In Lewars, the Florida Supreme
Court reiterated that a statute need not be given a literal interpretation
when doing so would result in an unreasonable or ridiculous conclusion;
however, the absurdity doctrine should not be used in circumstances
which require a court to rewrite a statute instead of to correct a technical
or ministerial error. 259 So. 3d at 800-01.
     Here, neither party argued that the absurdity doctrine should
apply. The State responded to our order, asserting that the doctrine does

                                     50
not apply "but the related concept of construing a law consistent with its
evident purpose does." The State maintained that the absurdity
"doctrine allows a court to deviate from the otherwise plain meaning of a
text only 'if failing to do so would result in a disposition that no
reasonable person could approve,' " quoting Antonin Scalia & Bryan A.
Garner, Reading Law: The Interpretation of Legal Texts 234 (2012), and
citing to Lewars, 259 So. 3d at 800-02. Unsurprisingly, Mr. Crose also
responded that the absurdity doctrine does not apply here, relying on his
argument that the trial court correctly analyzed the statutory language.
      Still, it is not clear what policy reasons would support the
conclusion that a sex offender who is released from prison would not be
required to register and provide information as required by section
943.0435 until all portions of the offender's sanction, such as the
payment of fines or completion of probation, are satisfied. But because
neither party contends that the absurdity doctrine should apply, the
majority opinion correctly declines to further analyze the doctrine. When
the State has explicitly declined to make an argument, we will not act as
the State's advocate. See Burke v. Burke, 330 So. 3d 84, 86 (Fla. 2d DCA
2021) ("This Court will not depart from its dispassionate role and become
an advocate by second guessing counsel and advancing for him theories
and defenses which counsel either intentionally or unintentionally has
chosen not to mention." (quoting Polyglycoat Corp. v. Hirsch Distribs.,
Inc., 442 So. 2d 958, 960 (Fla. 4th DCA 1983))), review denied, No. SC22-
82, 2022 WL 1566687 (Fla. May 18, 2022); see also Braddy v. State, 219
So. 3d 803, 825 (Fla. 2017) ("But Braddy fails to make any argument
regarding these claims on appeal. Accordingly, Braddy has waived any
issue on appeal regarding these claims."); Menchillo v. State, 350 So. 3d
136, 139 n.1 (Fla. 2d DCA 2022) ("An appellate court is 'not at liberty to

                                      51
address issues that were not raised by the parties.' . . . For an appellant
to raise an issue properly on appeal, he must raise it in the initial brief.
Otherwise, issues not raised in the initial brief are considered waived or
abandoned." (quoting Rosier v. State, 276 So. 3d 403, 406 (Fla. 1st DCA
2019) (en banc))).

LABRIT, J., Concurs.

LaROSE, J., Specially concurring in result only.
      I concur in the result reached by the majority. Because Mr. Crose
had not been released from his entire sanction, see § 943.0435(1)(h)1,
Fla. Stat. (2019); State v. James, 298 So. 3d 90, 92 (Fla. 2d DCA 2020),
the trial court order is properly affirmed.
      The majority offers a thoughtful and thorough examination of the
supremacy-of-the-text doctrine and the recent controversy rule.
Respectfully, however, I believe that the majority poses a false choice. To
my mind, the majority needlessly jettisons the recent controversy rule as
so much jetsam. Because of the supremacy-of-the-text doctrine, the
majority, in my view, seemingly concludes that the recent controversy
rule no longer holds sway. As Justice Kagan once remarked, "we are all
textualists." Harvard Law School, The Antonin Scalia Lecture Series: A
Dialogue with Justice Elena Kagan on the Reading of Statutes, YouTube
(Nov. 25, 2015) https://www.youtube.com/watch?v=dpEtszFT0Tg.
      Maybe so; but on the record before us, I see no need to make the
choice offered by the majority. The statute under which the State
charged Mr. Crose is clear and unambiguous. Consequently, courts
should "not look behind the statute's plain language for legislative intent
or resort to rules of statutory construction to ascertain intent."

                                     52
Kasischke v. State, 991 So. 2d 803, 807 (Fla. 2008) (alteration in original)
(quoting Borden v. E. Eur. Ins. Co., 921 So. 2d 587, 595 (Fla. 2006)). The
supremacy-of-the-text doctrine compels affirmance. See, e.g., Savona v.
Prudential Ins. Co. of Am., 648 So. 2d 705, 707 (Fla. 1995) ("Because the
language of the statute is clear, we do not look beyond it to discern
legislative intent."); Dean Wish, LLC v. Lee County, 326 So. 3d 840, 850
(Fla. 2d DCA 2021); Ellsworth v. State, 89 So. 3d 1076, 1078 (Fla. 2d
DCA 2012) ("When the statutory language is clear, courts may not
explore legislative history nor apply canons of statutory construction.");
Fla. Retail Fed'n, Inc. v. City of Coral Gables, 282 So. 3d 889, 895-96 (Fla.
3d DCA 2019) ("There is no need to resort to rules of statutory
construction because the statutory text is clear."), review denied, No.
SC19-1798, 2020 WL 710303 (Fla. Feb. 12, 2020). Our work is done.
     Although I appreciate the majority's efforts to resolve an apparent
conundrum that has, by all accounts, bedeviled many Florida courts, Mr.
Crose's case, quite simply, does not compel us to trek down a path we
need not tread. See Amy Coney Barrett, Substantive Canons and Faithful
Agency, B.U. L. Rev, 109, 112 (2010) ("The rival theories [of statutory
interpretation] in this regard were - and remain - purposivism and
textualism. Purposivism, the classical approach to statutory
interpretation, claims that a judge should be faithful to Congress's
presumed intent rather than to the statutory text when the two appear to
diverge. Textualism, by contrast, maintains that the statutory text is the
only reliable indication of congressional intent. The defining tenet of
textualism is the belief that it is impossible to know whether Congress
would have drafted the statute differently if it had anticipated the
situation before the court. The legislative process is path-dependent and
riddled with compromise." (footnote omitted)).

                                     53
      I cannot ignore the fact that the legislature amended section
943.0435 after James. The State urges us to apply the amended statute
because it reflects the legislature's true intent. See ch. 2021-156, § 1,
Laws of Fla. ("The Legislature intends that a person must register as a
sexual offender pursuant to s. 943.0435, Florida Statutes, when he or
she has been convicted of a qualifying offense and, on or after October 1,
1997, has . . . [b]een released from a sanction imposed upon
conviction."). After all, our supreme court informs us that "[c]ourts may
look to a statutory amendment as clarification of the legislature's 'intent
behind the prior version of the statute.' " Dean Wish, LLC, 326 So. 3d at
850 (quoting Leftwich v. Fla. Dep't of Corr., 148 So. 3d 79, 83-84 (Fla.
2014))). That precedent remains undisturbed. Id. I would not be so bold
as to conclude that our supreme court abandoned the recent controversy
rule sub silentio. See Puryear v. State, 810 So. 2d 901, 905-06 (Fla.
2002) ("We take this opportunity to expressly state that this Court does
not intentionally overrule itself sub silentio. Where a court encounters
an express holding from this Court on a specific issue and a subsequent
contrary dicta statement on the same specific issue, the court is to apply
our express holding in the former decision until such time as this Court
recedes from the express holding. Where this Court's decisions create
this type of disharmony within the case law, the district courts may
utilize their authority to certify a question of great public importance to
grant this Court jurisdiction to settle the law."); cf. Christopher J.
Baldacci, The Common Law of Interpretation, 108 Virginia L. Rev. 1243,
1245 (2022) ("For many years, judges and scholars have agreed there is
no such thing as 'methodological stare decisis.' No Supreme Court
majority opinion purports to require that future justices be textualists or
purposivists. Nor does one majority's decision to use a particular

                                     54
extrinsic source (like dictionaries or drafting history) seem to mean that
future courts must do the same. Thus, while a given case may stand for
any number of legal propositions, each court supposedly writes on a
blank methodological slate." (footnote omitted)).
      The recent controversy rule is no more than an interpretive tool in
a court's toolbox to discern statutory meaning. But a court should not
apply the rule in a wooden fashion. Indeed, our supreme court urges
caution. A legislature cannot retroactively nullify the clear and
unambiguous language used by a prior legislature to express its current
intent. Dadeland Depot, Inc. v. St. Paul Fire & Marine Ins., 945 So. 2d
1216, 1230 (Fla. 2006) (recognizing that the Florida Supreme Court has
"been reluctant to look at subsequent amendments to determine
legislative intent when the language of a statute is clear and
unambiguous"); Kaisner v. Kolb, 543 So. 2d 732, 738 (Fla. 1989)
("Subsequent legislatures, in the guise of 'clarification,' cannot nullify
retroactively what a prior legislature clearly intended.").
      This is particularly important for Mr. Crose. The State's position
presents serious concerns about ex post facto laws, laws prohibited by
our national and State constitutions. See art. I, § 10, cl. 1, U.S. Const.;
art. I, § 10, Fla. Const. Even in the civil context, unrestrained
application of the recent controversy rule could impair contractual
obligations undertaken pursuant to a clear and unambiguous statute.
Cf. Fla. Ins. Guar. Ass'n v. Devon Neighborhood Ass'n, 67 So. 3d 187, 195
(Fla. 2011) ("The presumption against retroactive application is a well-
established rule of statutory construction that is appropriate in the
absence of an express statement of legislative intent because 'a
presumption against retroactivity will generally coincide with legislative

                                     55
and public expectations.' " (quoting Arrow Air, Inc. v. Walsh, 645 So. 2d
422, 425 (Fla. 1994))).
      The statute before us is clear and unambiguous. Thus, the text
compels the majority's result. Having said that, however, I cannot
conclude that there can never be a place for the recent controversy rule.
To say it again, the rule is a tool of interpretation.
      One may imagine a situation where a statutory text is less than
clear. See, e.g., Kasischke, 991 So. 2d at 807 (determining, in five-to-two
vote that "[t]he plain language of the statute could be construed in at
least four ways," while the two dissenting justices, writing separately,
asserted that the plain meaning of the statute was unambiguous). All
must agree that "[s]ince words, by their nature, are imprecise
instruments, . . . [statutes] . . . may have gray areas at the margins."
United States v. Barnes, 295 F.3d 1354, 1366 (D.C. Cir. 2002) (quoting
U.S. v. Nason, 269 F.3d 10, 22 (1st Cir. 2001)). A panoply of
interpretative tools is available to a reviewing court. See Karl N.
Llewellyn, Remarks on the Theory of Appellate Decision and the Rules or
Canons about how Statutes are to be Construed, 3 Vand. L. Rev. 395,
401-06 (1950) (listing a variety of canons for statutory construction). It
seems to me that a court could look to postenactment amendments as
one clue to discern the meaning of unclear and/or ambiguous text. See,
e.g., D & T Props., Inc. v. Marina Grande Assocs., 985 So. 2d 43, 48 (Fla.
4th DCA 2008) (reasoning that the statutory amendments "did not nullify
the plain language of earlier legislation" where "[t]he legislation clarified
an ambiguity in earlier legislation").
      A minimalist approach to the law is prudent. I would affirm the
trial court's order based on the supremacy-of-the-text doctrine. I would
recede from Hull and Madison at Soho to the extent they suggest that the

                                      56
recent controversy rule may be applied to otherwise clear and
unambiguous statutory text. Delving further into the continuing vitality
of the recent controversy rule takes us well beyond what we need to do.
This I cannot abide. See PDK Lab'ys, Inc. v. U.S. D.E.A., 362 F.3d 786,
799 (D.C. Cir. 2004) (Roberts, J., concurring in part and concurring in
the judgment) (observing that judicial restraint cautions that when "it is
not necessary to decide more, it is necessary not to decide more").
KELLY, VILLANTI, MORRIS, BLACK, and SMITH, JJ., Concur.

ATKINSON, Judge, Concurring in result.

     I concur in the result reached by the majority. The recent
controversy rule is incompatible with our role as members of the
judiciary, which, when it comes to the interpretation of legal texts,
requires us to apply the language in accordance with the ordinary
meaning of the words in their context.
     To the extent [the recent controversy rule] is employed in
     abrogation of the meaning of the text of a pre-amendment
     version of a statute, the rule is inconsistent with our charge
     as members of the judicial branch. "In determining the
     meaning of a statute, we adhere to the supremacy-of-the-text
     principle—a principle recognizing that '[t]he words of a
     governing text are of paramount concern, and what they
     convey, in their context, is what the text means.' " Levy v.
     Levy, 326 So. 3d 678, 681 (Fla. 2021) (alteration in original)
     (emphasis added) (quoting Page v. Deutsche Bank Tr. Co.
     Ams., 308 So. 3d 953, 958 (Fla. 2020)); CCM Pathfinder Palm
     Harbor Mgmt., LLC v. Unknown Heirs of Gendron, 198 So. 3d
     3, 9 (Fla. 2d DCA 2015) ("[I]t is this court’s role to apply the
     law as written . . . .").
Hull v. State, 349 So. 3d 459, 467 (Fla. 2d DCA 2022) (Atkinson, J.,
dissenting). A failure to carry out this role by applying the recent
controversy rule would jeopardize the rule of law because we would be

                                    57
substituting what the text says with what we conclude it should say
based on a subsequent pronouncement of legislative intent. See id.
(Atkinson, J., dissenting) ("The majority relies on the recent controversy
rule to improperly implement a retroactive change to the plain and
ordinary meaning of the text of a statute as it read at the time of the
alleged crime. The plain and ordinary meaning of the language of the
statute in context, as it would be understood when it was enacted, is the
law. Courts may not apply the law in derogation of that meaning."
(citations omitted)); cf. State v. Peraza, 259 So. 3d 728, 733 (Fla. 2018)
("Because even a clearly discernible Legislative intent cannot change the
meaning of a plainly worded statute, it would only confuse matters to
focus on what the Legislature might have intended rather than what the
statute actually says."). And it would violate the constitution's
separation of powers requirement because we would be supplanting the
text enacted by the legislature that passed the law with something
enacted at a later time—ignoring the meaning of language employed by
the legislative branch in favor of a meaning derived from an extraneous
source. See Hull, 349 So. 3d at 465, 468 (Atkinson, J., dissenting). For
these reasons, the recent controversy rule should have no application in
Florida jurisprudence.
     Yet it does. As the majority points out, the recent controversy rule
has a long history of usage by Florida appellate courts. In this court's
most recent discussion of the rule, the majority in Hull considered itself
bound to follow the rule. See id. at 464, 464 n.6 (majority opinion)
(concluding that "we are bound to consider the legislature's clarified
intent" under the recent controversy rule because it is a "settled facet of
the law in our State"). I dissented and avoided the question of whether
the recent controversy rule is precedential because prior cases

                                     58
construing the rule from the supreme court and this court were
inapposite. See id. at 465 (Atkinson, J., dissenting) ("This court is not
bound by precedent to apply the rule under the circumstances of this
case . . . ."). While the majority in this case avoids directly resolving the
dichotomy it frames between the rule being "discretionary" or "quasi-
mandatory," it tacitly concludes that the rule is binding precedent
because it employs another purportedly binding doctrine to overrule it. I
find common cause with much of the criticism leveled in the majority
opinion against the recent controversy rule. However, I am unable to
join in the effort to drive a stake in the heart of the doctrine because the
logic employed by the majority to effect the doctrine's demise is flawed.
      The majority's reason for overruling the recent controversy rule is
what it characterizes as a "recent embrace" of the supremacy-of-text
principle for interpreting statutes, characterizing the embrace as so
significant that it constitutes a "paradigm shift in Florida law." The
majority reasons that the paradigm shift, combined with the Florida
Supreme Court's Conage decision, has rendered the recent controversy
rule incompatible with this new regime and resulted in the Florida
Supreme Court overruling the recent controversy rule sub silentio. While
it is reasonable to observe that a paradigmatic shift has occurred, it is a
separate question whether this recent "embrace" constitutes binding
precedent that overruled past decisional law implementing the recent
controversy rule such that the interpretive method is thenceforth
unavailable to all inferior court judges—as is the question of at what
point in time, if ever, this overruling occurred. The majority then
contends that even if the recent controversy rule was not overruled, the
shift in statutory interpretation now gives life to previously inapplicable

                                      59
constitutional concerns of ex post facto laws and due process violations.
See infra note 16.
     It is inaccurate to describe the supreme court's "embrace" of the
supremacy-of-text principle as "recent" when that approach to the
interpretation of legal texts had already been espoused in several
opinions of the supreme court at the time Hull was decided in 2022. See
Sheffield v. R.J. Reynolds Tobacco Co., 329 So. 3d 114, 119 (Fla. 2021);
Levy, 326 So. 3d at 681; Page, 308 So. 3d at 958; Ham v. Portfolio
Recovery Assocs., LLC, 308 So. 3d 942, 946–47 (Fla. 2020); Advisory Op.
to Governor re Implementation of Amend. 4, the Voting Restoration
Amend., 288 So. 3d 1070, 1078 (Fla. 2020). The majority even cites case
law predating Hull for the proposition that the supreme court "has now
instructed us to 'follow the supremacy-of-text principle.' " (Emphasis
added) (quoting Ham, 308 So. 3d at 946). If the recent controversy rule
was available as an interpretive tool at the time Hull was decided by
virtue of the supreme court's past usage of the rule, then it follows that
the supremacy-of-text principle was also available as an interpretive tool
at the time Hull was decided. See Hull, 349 So. 3d at 467–68 (Atkinson,
J., dissenting) (contending that the application of the recent controversy
rule would violate "the supremacy-of-the-text principle" (quoting Levy,
326 So. 3d at 681)). Yet, at a time when several Florida Supreme Court
opinions had been decided based on the supremacy-of-text principle, the
majority in Hull decided that the recent controversy rule should be
applied in derogation of the text. See id. at 464 n.6 (majority opinion)
(conceding that this court correctly interpreted the preamendment
statutory text in James but nevertheless applying a different
interpretation under the recent controversy rule). Manifestly, the

                                    60
putative "incompatibility" between the two doctrines claimed by the
majority in this case was extant at the time Hull was decided.
      To be clear, I do not argue that the two doctrines are not
incompatible; to the contrary, when a judge seizes upon what he or she
perceives as some indicia of legislative intent and favors it over the
ordinary meaning of the text of the document being interpreted, the
legislative-intent-as-polestar method and the supremacy-of-text principle
are irreconcilable. It was for parallel reasons that I asserted in my
dissenting opinion in Hull that the recent controversy rule—which is
itself, to paraphrase the majority's astute observation, premised on the
supremacy of legislative intent—is incompatible with the supremacy-of-
text philosophy. Indeed, two competing things cannot both be supreme
when they are in conflict. And yet, even according to the majority's
rationale for the disparate treatment of the recent controversy rule in
Hull and this case, both the legislative-intent-as-polestar methodology
and the supremacy-of-text principle had been espoused by, and formed
the basis of, supreme court decisions in the era that persisted up until
the Conage case was decided. See, e.g., Ham, 308 So. 3d at 946 ("In
interpreting the statute, we follow the 'supremacy-of-text principle'—
namely, the principle that '[t]he words of a governing text are of
paramount concern, and what they convey, in their context, is what the
text means.' " (quoting Antonin Scalia & Bryan A. Garner, Reading Law:
The Interpretation of Legal Texts 56 (2012))); McCloud v. State, 260 So. 3d
911, 914 (Fla. 2018) (reasoning the purpose of statutory interpretation
"is to effectuate the Legislature's intent because 'legislative intent is the
polestar that guides a court's statutory construction analysis.' " (quoting
State v. J.M., 824 So. 2d 105, 109 (Fla. 2002))). The explanation for this
coexistence of incompatible interpretive methodologies is not perplexing

                                      61
(and indeed is not historically atypical) if one considers the
methodologies as merely competing tools of interpretation rather than
binding precedential pronouncements of the high court. Because the
majority takes the latter view, a line of demarcation was logically
necessary to justify the disparate treatment of the recent controversy rule
as it was applied in the Hull decision and in this case.
     As discussed, the unignorable volume of pre-Hull Florida Supreme
Court decisions relying on the supremacy-of-text principle poses a
challenge for the majority's rationale. See, e.g., Sheffield, 329 So. 3d at
119; Levy, 326 So. 3d at 681; Page, 308 So. 3d at 958; Ham, 308 So. 3d
at 946–47; Advisory Op. to Governor re Implementation of Amend. 4, 288
So. 3d at 1078. The majority attempts to elide this chronological
problem by citing the post-Hull decision of Conage v. United States, 346
So. 3d 594 (Fla. 2022), as a fulcrum point for the proposition that the
supreme court "unequivocally abandoned the legislative intent approach
[to statutory interpretation] emblemized in Holly [v. Auld, 450 So. 2d 217
(Fla. 1984)]." However, in Conage, the supreme court took issue with
only the following sentence from the Holly decision: "When the language
of the statute is clear and unambiguous and conveys a clear and definite
meaning, there is no occasion for resorting to the rules of statutory
interpretation and construction." Conage, 346 So. 3d at 598 (quoting
Holly, 450 So. 2d at 219). The supreme court reasoned that, "[i]n
practice, following this maxim often leads the interpreter to focus on a
disputed word or phrase in isolation; [and] the maxim also leaves the
interpreter in the dark about how to determine whether a particular word
or phrase has a clear meaning." Id. The supreme court consequently
labeled the aforementioned "Holly principle" as "misleading and

                                     62
outdated," and reaffirmed supremacy-of-text principles that it had
already pronounced in at least seven prior decisions:
     [J]udges must exhaust all the textual and structural clues
     that bear on the meaning of a disputed text. That is
     because the plainness or ambiguity of statutory language is
     determined by reference to the language itself, the specific
     context in which that language is used, and the broader
     context of the statute as a whole.
           . . . It would be a mistake to think that our law of
     statutory interpretation requires interpreters to make a
     threshold determination of whether a term has a "plain" or
     "clear" meaning in isolation, without considering the
     statutory context and without the aid of whatever canons
     might shed light on the interpretive issues in dispute.
Id. (citations omitted) (first quoting Alachua County v. Watson, 333 So. 3d
162, 169 (Fla. 2022); then quoting Robinson v. Shell Oil Co., 519 U.S.
337, 341 (1997)); see Lab'y Corp. of Am. v. Davis, 339 So. 3d 318, 323
(Fla. 2022) (explaining that, under the supremacy of text principle, one
looks to the words and the context in which they are used); Sheffield,
329 So. 3d at 119 (same); Levy, 326 So. 3d at 681 (same); State v.
McKenzie, 331 So. 3d 666, 670–71 (Fla. 2021) (same); Page, 308 So. 3d
at 958 (same); Ham, 308 So. 3d at 946–47 (same); Advisory Op. to
Governor re Implementation of Amend. 4, 288 So. 3d at 1078 (same).
     The majority overstates the Conage opinion. Conage solely
addressed an often-cited principle from the supreme court's 1984 Holly
decision that misled courts into analyzing the meaning of a disputed text
in isolation without considering the context of that text. 346 So. 3d at
598. The supreme court concluded that courts are not limited to
reviewing disputed words in isolation when determining whether they are
clear or ambiguous and abrogated Holly to the extent it required courts
to do so, instead authorizing courts to consider the disputed text, its

                                    63
context, and any helpful canons of interpretation in evaluating whether a
particular word or phrase has a clear meaning or is ambiguous. Id.
      One need not minimize the undeniable importance of Conage to
conclude that it had nothing to do with legislative intent and that there is
no reasonable way to read the opinion to conclude that it abrogated an
entire legislative-intent approach to statutory interpretation. By
reaffirming that context is always relevant to interpreting legal texts and
clarifying that ascertainment of the meaning of the text of a statute by
resort to the canons of construction does not depend on a threshold
determination of its ambiguity, Conage reaffirmed the supremacy-of-text
principle that had already been pronounced on many prior occasions,
including those predating this court's Hull decision. Nor was Conage an
explicit repudiation of the proposition that the "polestar" of legislative
intent was available to guide judges' interpretation of statutes, see
McCloud, 260 So. 3d at 914, much less a sub silentio elimination of the
recent controversy rule. As pernicious as the long-standing obeisance to
the elusive concept of legislative intent might be to those who believe the
text should be supreme in matters of statutory construction, Conage
cannot be relied upon to eradicate all intent-based interpretive methods
any more than it can be perceived as an eradication of the related but
likewise long-standing availability of the recent controversy rule.
      Eliding the arbitrariness of its selection of Conage as the
demarcation between the era in which the recent controversy rule was
mandatory and the new era in which the rule is now verboten, the
majority protesteth too much, methinks, when it informs the reader that
"it is not hyperbole to observe that Conage's displacement of Holly and
the supreme court's recent embrace of the supremacy-of-text principle
constituted a paradigm shift in Florida law." The majority's selection of

                                     64
Conage as the pertinent fulcrum point between one method of statutory
interpretation and another to support its rationale cannot be justified as
anything more than an arbitrarily drawn line in the shifting sand of
interpretive jurisprudence.
      Moreover, even if, for the sake of analysis, Conage could be
considered a relevant line of demarcation, it is also difficult to conclude
that the case overruled the recent controversy rule because it is not clear
that the supremacy-of-text principle, a methodological precedent, is
entitled to binding precedential effect under stare decisis. See, e.g., Kisor
v. Wilkie, 139 S. Ct. 2400, 2444 (2019) (Gorsuch, J., concurring) ("[W]e
do not regard statements in our opinions about such generally applicable
interpretive methods, like the proper weight to afford historical practice
in constitutional cases or legislative history in statutory cases, as binding
future Justices with the full force of horizontal stare decisis." (first citing
Evan J. Criddle & Glen Staszewski, Against Methodological Stare Decisis,
102 Geo. L.J. 1573, 1577 & n.12 (2014); then citing Chad M. Oldfather,
Methodological Stare Decisis and Constitutional Interpretation, in United
States Supreme Court Precedent 135, 135–36 (Christopher J. Peters ed.
2013))); Cabeda v. Att'y Gen. of U.S., 971 F.3d 165, 171 n.4 (3d Cir.
2020) ("[S]hifting interpretive methodologies are not usually viewed as
carrying the force of stare decisis, at least not when the decisions
employing them do not purport to overrule past precedent. We have
noted that the Supreme Court 'typically avoids methodological stare
decisis,' while observing that 'federal courts do not treat interpretive
methodology as a traditional form of law.' " (citation omitted) (quoting
Am. Farm Bureau Fed'n v. U.S. E.P.A., 792 F.3d 281, 307 n.8 (3d Cir.
2015))).

                                      65
      In other words, inferior courts are arguably no more obligated to
adhere to the supremacy-of-text principle espoused by current and
recent members of the Florida Supreme Court than were inferior courts
required to follow the legislative-intent-as-polestar philosophy that was
espoused by past members of the Florida Supreme Court. I do not
believe that inferior court judges were compelled to follow the "polestar"
of "legislative intent," illuminated by the Florida Supreme Court during
the era in which adherents to that methodology prevailed among its
ranks. See, e.g., McCloud, 260 So. 3d at 914. If inferior court judges
during that time could not in intellectual honesty bend to the notion that
perceptions of legislative intent should be their guide because they in
good conscience thought the text to be supreme, they were free to hew to
the ordinary meaning of the text despite supreme court case law
pronouncing that legislative intent should be paramount. Therefore,
despite my belief that the supremacy-of-text principle is consistent with
the proper role of judges in our tripartite system of government—and
that a legislative-intent-as-polestar methodology is inconsistent with that
role because of its propensity to subordinate the meaning of the text
itself—I cannot conclude that supreme court opinions relying on the
supremacy-of-text principle constitute binding precedent compelling
inferior courts to forever and under all circumstances foreswear
legislative intent as relevant to the interpretation of statutes.
      [M]ethodological decisions are frequently intertwined with a
      judge's most fundamental beliefs and commitments about the
      rule of law and democracy, and the application of stare
      decisis to interpretive methodology would in principle require
      judges to make what they view as unconscionable decisions.
      Once again, it is one thing to require judges to follow binding
      substantive rules with which they disagree, but it is another
      thing to require judges to follow higher-order rules that force
      them to make decisions on issues of first impression in a

                                      66
     manner that is contrary to their fundamental understanding
     of the role of federal courts in a constitutional democracy. It
     is hard to believe, for example, that Justice Scalia would
     agree to decide every future statutory case that comes before
     the Court in a purposive fashion merely because Justice
     Breyer was able to persuade a five-Justice majority to adopt
     this approach in the first case decided under a regime of
     methodological stare decisis.
Criddle & Staszewski, supra, at 1595 (arguing that "federal courts should
resist the siren song of methodological stare decisis").
     The legislative-intent-as-polestar philosophy that the majority
observantly describes as regnant in a bygone era and the supremacy-of-
text principle that it identifies as the now-prevailing method in light of
recent supreme court case law share one thing in common: they are both
methodological precedents of the variety that courts and commentators
have historically considered to be outside the ambit of stare decisis.
They are interpretive tools, the employment of which does not constitute
binding precedent. Cf. Kisor, 139 S. Ct. at 2444 (Gorsuch, J.,
concurring) (identifying the "interpretive methodology" at issue as "an
abstract default rule of interpretive methodology that settles nothing of
its own force," "[i]n contrast to precedents that fix the meaning of
particular statutes and generate reliance interests in the process"
(emphasis in original)). That I and others celebrate the fall of the former
and the rise of the latter as a salutary development in high court
jurisprudence should not give way to the temptation to lock in perceived
victories as something more than they are. That sword has two edges,
and a welcome supreme court trend toward adherence to a fair reading of
the text itself and away from slippery notions of legislative intent could
easily be reversed in the future by the vicissitudes of court membership.
     The same criticism against those interpretive methods as subject to
stare decisis can arguably be leveled at the recent controversy rule
                                     67
itself—that is, the rule is arguably methodological precedent that is not
binding on subsequent panels or inferior courts. As I noted in my
dissenting opinion in Hull, and as the majority in this case has
acknowledged, this court and others have treated the recent controversy
rule merely as an interpretive tool without binding precedential effect.
Cf. Hull, 349 So. 3d at 466 (Atkinson, J., dissenting) (noting that "courts
of this state have instead characterized the recent controversy rule as a
method of statutory interpretation"); see also Hardee County v. FINR II,
Inc., 221 So. 3d 1162, 1167 (Fla. 2017) (referring to the evaluation of
"amendments enacted shortly after controversies as to the interpretation
of the original act" as a "tool[] of statutory interpretation"); Dadeland
Depot, Inc. v. St. Paul Fire & Marine Ins. Co., 945 So. 2d 1216, 1230 (Fla.
2006) (explaining that "it may be within this Court’s discretion to look to
the Legislature’s recent amendment of section 624.155 to assist in
construing the term 'insured' " (emphasis added)); State v. Lanier, 464
So. 2d 1192, 1193 (Fla. 1985) (“[W]e are not bound by statements of
legislative intent uttered subsequent to either the enactment of a statute
or the actions which allegedly violate the statute."); Dean Wish, LLC v.
Lee County, 326 So. 3d 840, 850 (Fla. 2d DCA 2021) ("Because the Act's
language before us is clear, we need not look at the 2021 amendment to
discern a prior legislative intent."). But, as pointed out by the majority,
the body of available case law also includes opinions that treat the recent
controversy rule as mandatory precedent. See, e.g., Hull, 349 So. 3d at
464 n.6 (acknowledging the court's prior opinion in James correctly
applied the preamendment text of the statute, but using the recent
controversy rule to apply a different meaning because the rule is a
"settled facet of the law in our State").

                                      68
     Admittedly, the argument for the supremacy-of-text principle and
other methodological precedents as binding precedent is not completely
bereft of merit—or appeal—and certainly not without its thoughtful and
learned proponents (which, of course, include my colleagues in the
majority of this case). See, e.g., Aaron-Andrew P. Bruhl, Eager to Follow:
Methodological Precedent in Statutory Interpretation, 99 N.C. L. Rev. 101,
102 (2020) (describing "the hope of [methodological precedent] advocates
. . . that making interpretive methodology into binding law will reduce
the much lamented unpredictability of statutory interpretation"). The
Florida Supreme Court and some of its members have occasionally
employed authoritative language when describing a preferred interpretive
methodology, which such admonitions could be perceived as (or
mistaken for) the setting of binding precedent. See, e.g., State Farm Mut.
Auto. Ins. Co. v. Shands Jacksonville Med. Ctr., 210 So. 3d 1224, 1229
(Fla. 2017) ("[W]e must consider the statute as a whole, including the evil
to be corrected, the language, the title, and history of its enactment, and
the state of law already in existence on the statute." (emphasis added)
(quoting Fla. Dep't of Env't Protc. v. ContractPoint Fla. Parks, LLC, 986 So.
2d 1260, 1266 (Fla. 2008))); Metro. Cas. Ins. Co. v. Tepper, 2 So. 3d 209,
215 (Fla. 2009) ("Because the plain language of section 627.727(6)(b)
plainly states that an UM carrier 'is entitled to seek subrogation' only
'upon final resolution of the underinsured motorist claim,' we conclude
that the statute is mandatory . . . . This result is supported by the plain
language of the statute and our precedent on statutory interpretation."
(emphasis added)); Kasischke v. State, 991 So. 2d 803, 824 n.27 (Fla.
2008) (Lewis, J., dissenting) ("Under binding precedent, legislative
history—and specifically staff analyses—remain appropriate tools in
discerning the intent of the Legislature. . . . The current majority opinion

                                     69
attempts to alter this precedent through gradual subterfuge. I cannot
take such a stance with regard to stare decisis unless and until the
existing precedent is overruled." (emphasis added)). It is far from certain,
however, that inferior courts are consequently obligated to—or even
capable of—slavish adherence to the particular application of any of the
interpretive methods employed in those cases and in the hierarchical
order in which competing canons are applied, which themselves are not
all sacrosanct but subject to realignment depending on the
circumstances of each case. See Criddle & Staszewski, supra, at 1593
(" '[S]tatutory interpretation methodology does not seem susceptible to
the rule-like approach of stare decisis' because it is fundamentally 'a web
of considerations with different and varying weights rather than a set of
hierarchical rules.' " (quoting Connor N. Raso & William N. Eskridge, Jr.,
Chevron as a Canon, Not a Precedent: An Empirical Study of What
Motivates Justices in Agency Deference Cases, 110 Colum. L. Rev. 1727,
1811 (2010))).
      However, that debate need not be resolved here for several reasons.
First, the majority's artificial line of demarcation is not supported by logic
or the case law on which it relies. What is readily apparent is that the
majority treats this case differently than the majority treated the near
identical circumstances of Hull based on supreme court precedent that
predated the Hull case and the Conage opinion. And quite simply,
nothing pertinent has changed since Hull, and whatever change was
effected by Conage did not alter the precedential effect—or lack thereof—
of prior cases that applied the recent controversy rule. Indeed, the
majority cites cases predating both Hull and Conage for the proposition
that the supreme court "has now instructed us" to "follow the
'supremacy-of-text' principle." (Emphasis added) (quoting Ham, 308 So.

                                     70
3d at 946). This raises the unanswered question of what the supreme
court was doing in Ham or the several other pre-Conage supreme court
cases decided based on the supremacy-of-text principle (merely
suggesting its availability as an interpretive tool?). The fatal
shortcomings of the majority's selection of one among many prior and
subsequent supreme court supremacy-of-text opinions as a point certain
at which the recent controversy rule can "no longer be aligned within
current Florida jurisprudence" belie the gravamen of its "paradigm shift"
rationale for the course correction. (Emphasis added.). So, even if the
supremacy-of-text principle is subject to vertical stare decisis15—an open
question for which I concede a case could possibly be made—the
utilization of the interpretive method in Conage cannot be deemed a
holding that obligates inferior courts to consider the supreme court to
have overruled sub silentio its previous approval of the use of the recent
controversy rule. See Stevens v. State, 226 So. 3d 787, 792 (Fla. 2017)
(explaining that the supreme court does not overrule itself sub silentio);
accord Arsali v. Chase Home Fin. LLC, 121 So. 3d 511, 516 (Fla. 2013);
Roberts v. Brown, 43 So. 3d 673, 683 (Fla. 2010); Tompkins v. State, 994
So. 2d 1072, 1088 (Fla. 2008); Puryear v. State, 810 So. 2d 901, 905 (Fla.
2002).
      Another reason we need not at this time resolve the debate about
what binding effect to afford methodological precedent such as legislative
intent primacy or textual supremacy is that there are other more

      15 See Abbe R. Gluck, The States as Laboratories of Statutory

Interpretation: Methodological Consensus and the New Modified
Textualism, 119 Yale L.J. 1750, 1773 n.73 (2010) (contrasting "horizontal
methodological stare decisis"—when "the state supreme court itself
follows its own previous methodological statements from case to case"—
with "vertical methodological stare decisis"—"which involves the
relationship between higher and lower courts").
                                     71
compelling reasons to reject application of the recent controversy rule in
this case and others—even leaving aside the question of whether the
recent controversy rule itself was ever binding precedent subject to stare
decisis. For one, there is a paucity of case law indicating that the recent
controversy rule should be applied—as it was in Hull—"explicitly" and
admittedly "in contravention of the plain meaning of the text of the
previous version of the statute and in conflict with a prior panel decision
of this court implementing a fair reading of that unambiguous text."
Hull, 349 So. 3d at 473 (Atkinson, J., dissenting) (comparing the
majority's decision to Leftwich v. Florida Department of Corrections, 148
So. 3d 79, 86 (Fla. 2014), in which "[t]he court referenced the
legislature’s subsequent pronouncement of intent in the bill amending
the statute as support for the proposition that the legislature had always
intended an interpretation consistent with the text of the preamendment
statute to be the effect of the statute—i.e., as 'a clarification of original
legislative intent rather than a change in the law' " (emphasis added)
(quoting Leftwich, 148 So. 3d at 86)).
      More importantly, there is no case law applying the recent
controversy rule to impose on the version of the statute in effect at the
relevant time a meaning its text cannot bear in violation of the
constitutional prohibitions against ex post facto laws or the impairment
of the obligations of a contract. See, e.g., id. at 473 (Atkinson, J.,
dissenting) ("Thus, Madison at Soho II’s discussion of retroactivity and
the constitutional provisions it could theoretically violate—e.g., the ex
post facto clause, the impairment of contract clause—is dicta because
there was never any danger in that case of violating such constitutional
provisions because this court was applying the statute in accordance
with the plain and ordinary meaning of the text of the preamendment

                                      72
version of the statute in effect at the time of the facts giving rise to the
controversy." (emphasis in original)). Despite the requirement to follow
the decisions of the Florida Supreme Court and the generally accepted
obligation to follow prior panel precedent, I am "not aware of any
published opinion of the Florida Supreme Court that applies the recent
controversy rule to retroactively impose a criminal liability that was not
supported by the text of the statute at the time of the alleged offense."
Id. at 471–72 (Atkinson, J., dissenting). While the Florida Supreme
Court has applied the recent controversy rule in a criminal case, it did
not do so to contravene the meaning of the language of the statute in
effect at the time of the alleged commission of the crime (which is what
the Hull majority admittedly did), but rather to clarify legislative intent
that was consistent with the unambiguous language of the original
statute. See Leftwich, 148 So. 3d at 85–88; Lanier, 464 So. 2d at 1193.
And none of this court's prior opinions construing the recent controversy
rule "contain binding interpretations of constitutional provisions" that
should have precluded application of the rule. Hull, 349 So. 3d at 473
(Atkinson, J., dissenting) (distinguishing this court's decision in Madison
at Soho II Condo. Ass'n v. Devo Acquisitions Enters., LLC, 198 So. 3d 1111
(Fla. 2d DCA 2016), on the grounds that its constitutional discussion
was dicta and that the court "decided that the recently enacted
pronouncement of legislative intent was consistent with the plain
meaning of the text of the pre-amendment version of the statute").
      And even conceding for the sake of analysis that courts were bound
by the legislative-intent-as-polestar interpretive method that the majority
in this case describes as preeminent prior to Conage, the majorities in
Hull and in Madison at Soho were giving effect to the wrong legislative
intent. In those opinions, the judicial branch was showing deference to

                                      73
the wrong legislature—not the one that enacted the law in effect at the
time of the facts giving rise to the action but the one that issued a post
hoc legislative pronouncement enacted after the time period in question.
See id. at 468 (Atkinson, J., dissenting) ("While implementation of the
recent controversy doctrine deceptively defers to a subsequent legislative
pronouncement, it can be used to usurp the authority of the legislature
that enacted the text of the applicable version of the statute and
supplant those words with an expression of more recent legislative will
that is potentially in derogation of the text." (emphasis in original)). In so
doing, instead of maintaining the separation of powers, implementation
of the recent controversy rule by those courts was subverting the
separation of powers by supplanting the text enacted by the legislature in
the version of the statute applicable to the controversy with language
included in a law that was not enacted until later in time.
      Just as imposition of a judge's perception of what the law
      should say instead of what the text means would be a
      violation of the supremacy of the text principle as well as the
      separation of powers, adoption of a subsequent legislature's
      pronouncement of intent as to what a law should have said
      when it was enacted in the past instead of what it actually did
      say is likewise a violation of the supremacy of the text
      principle and separation of powers. Just as in the former, the
      judge in the latter scenario is applying something other than
      the ordinary meaning of the text enacted by the legislature
      that drafted and enacted the language of the pre-amendment
      statute.
Id. (Atkinson, J., dissenting) (emphasis in original) (citations omitted).
      In this case, as in Hull, that subversion of the rule of law and
violation of the separation of powers would adversely affect a litigant's
constitutional right against ex post facto laws. See Griffin v. State, 980
So. 2d 1035, 1036 (Fla. 2008) (explaining the test of whether a law
violates the ex post facto clause as "(1) whether the law is retrospective in

                                     74
effect; and (2) whether the law alters the definition of criminal conduct or
increases the penalty by which a crime is punishable"). The amended
statute and legislative expression of intent that the State would have us
apply in this case changes the plain and ordinary meaning of the
preamendment statute that was in effect at the time of Mr. Crose's
alleged offense, such that the amendment alters what constitutes the
crime of failure to report as a sexual offender to something different than
what constituted the crime at the time of Mr. Crose's failure to act. See
Hull, 349 So. 3d at 469 (Atkinson, J., dissenting) ("Under the pre-
amendment section 943.0435, the defendant was not subject to the
obligation he is alleged to have criminally failed to perform. Application
of the legislature’s amendment that explicitly rejected the James opinion
such that it would govern the application of the pre-amendment section
943.0435, would violate the constitutional prohibition of ex post facto
laws." (citations omitted)).
      In summation, there are several compelling reasons to reject
application of the recent controversy rule without addressing the
questions of methodological stare decisis that the majority's rationale
necessarily raises. I reject the majority's rationale because it is both
chronologically challenged and because I cannot accept one of its
necessary premises. Whatever precedential effect the recent controversy
rule has or had—and I do not concede it ever had binding effect—I do not
agree that in this case the court was compelled to apply the recent
controversy rule by any decision of the supreme court or any pre-Hull
decision of this court.
      The arbitrariness of the majority's chronology has real-world
consequences. Mr. Crose is being treated differently than Mr. Hull. The
majority in his case did not consider the purported crossing of the

                                     75
Rubicon that it and the rest of the en banc majority now announces to
have occurred at a time that was, unfortunately for Mr. Hull, too late for
him. I would have granted Mr. Hull the relief afforded to Mr. Crose today
when Mr. Hull advanced similar arguments in his case.16
     Accordingly, in this case, I concur in result for the reasons herein
and those on which I elaborated in my dissenting opinion in Hull. I
would apply the ordinary meaning of the statute's text as it existed at the
time of Mr. Crose's alleged offense because the recent controversy rule,
deeply flawed as it is on its merits, is also not something this court is
bound to apply in this case (if any). But I cannot agree with my
colleagues in the majority that such a result in this case is supported by
a purportedly binding precedent-setting "paradigm shift" in statutory
interpretation, the existence of which the majority does not adequately

     16 The majority in Hull avoided the ex post facto argument I

advanced in my dissenting opinion on the basis that it had not been
raised by Mr. Hull on appeal, 349 So. 3d at 464–65, even though Mr.
Hull had argued that his conduct should be governed by the version of
the statute in effect at the time of the alleged crime and not the later-
enacted version under the recent controversy rule. I rejected that stilted
and extreme application of the party presentation requirement (the rule
generally limiting appellate courts to reviewing for error only based on
the arguments raised by the parties). In this case there is no debate
about whether the ex post facto issue is before the court. However, by
the en banc majority's rationale, the constitutional protection that
prevents application of the amended version of the statute to Mr. Crose's
preamendment conduct in this case could not have been applied to Mr.
Hull—not because Mr. Hull did not explicitly raise it, but because Mr.
Hull's case was decided before "the advent of Ham and Conage," at a time
when, according to the majority's rationale, the use of the recent
controversy rule could still be justified as a constitutional "means of
clarifying intent" that had not yet become obsolete. For the reasons
explained herein, I do not share that view. The analysis that should have
afforded Mr. Hull relief from the violation of his constitutional rights
applies equally to Mr. Crose in this case.

                                     76
support and, even if it could, was already in effect (but not applied)
under identical circumstances in Hull.

Opinion subject to revision prior to official publication.

                                     77