Court Opinion

ID: 9532228
Source: CourtListenerOpinion
Date Created: 2023-08-07 04:19:24.315305+00
Date Added: 2024-06-11T13:28:42.467959
License: Public Domain

Madsen, J.
(dissenting) — Today the majority creates a "standard” that unjustifiably grants unbridled discretion in exceptional sentencing upward unless the statutory maximum is exceeded. In short, its holding amounts to saying that as long as a proper reason is found for departing from the standard range all departures upward are per se valid if they do not exceed the statutory máximums. This was never a result that the Legislature intended when it enacted the Sentencing Reform Act of 1981 (SRA), RCW 9.94A. The majority’s holding is not only inconsistent with the SRA’s commensurability purpose and intent to structure discretion, but it insures that no meaningful review can ever be had and that no common law principles to structure discretion will ever be developed for departure sentencing. RCW 9.94A.010; RCW 9.94A.210(6) (providing that opinions are to be issued when sentences are reversed and may be issued where the court believes that an opinion will provide guidance to others and in developing a common law of sentencing); State v. Shove, 113 Wn.2d 83, 88-89, 776 P.2d 132 (1989) ("A principal purpose of the SRA is to establish *405guidelines for sentencing judges’ discretion, thereby making the exercise of that discretion more principled and providing criteria for review by appellate courts.”); David Boerner, Sentencing in Washington § 9-3, at 9-9 to 9-10 (1985) (noting that if common law were to be developed sentencing decisions would be based on principle and guided by reason and reform would be realized); Boerner § 9.1 (saying that Washington reform intended that flexibility exist but that exceptional sentences be justified by principled reasons); see also ABA Standards for Criminal Justice: Sentencing std. 18-8.2 commentary at 249-51 (3d ed. 1994) (stating that the mission for appellate review is to develop law that guides and constrains sentencing judges’ use of their discretion). In holding as it does today, this court has abdicated the role the Legislature intended it have and has made review of aggravated sentences basically pointless.
The majority argues that the SRA dictates its result. A close examination of the SRA reveals quite the opposite. First, the majority argues that the SRA requires that its general declaration of purpose need only be considered by trial courts in deciding to "impose” an exceptional sentence and need not be considered by appellate courts when reviewing exceptional sentences. Majority, at 392.1 disagree with both these statements. The general purpose of the SRA governs all its aspects consistent with the well established rule of construction that the purpose language of an act governs interpretation of all its provisions. See, e.g, State v. Elgin, 118 Wn.2d 551, 555, 825 P.2d 314 (1992) (holding that the spirit or purpose of an enactment should prevail over inept wording and that this court’s "paramount duty” is to give effect to the Legislature’s intent); Pud 1 v. Wppss, 104 Wn.2d 353, 369, 705 P.2d 1195, 713 P.2d 1109 (1985) (statute language must be read in the context of the entire statute and construed so as to be consistent with the general purpose of the statute). This court cannot pick and choose when it feels the general purpose should apply after the Legislature has determined this purpose to be applicable to the statute as *406a whole. See RCW 9.94A.010 (defining the purpose of "this chapter”); State v. Pascal, 108 Wn.2d 125, 137-38, 736 P.2d 1065 (1987).
Nor does the operational language of the SRA support the majority’s conclusions. RCW 9.94A.120(2) does not direct trial courts to consider the general purpose of the SRA only in their decision to sentence outside the standard range. Rather, RCW 9.94A. 120(2) and (3) make sweepingly broad statements about trial judges setting out the reasons for the exceptional sentences they impose, which must logically be read to include reasons for the length of these sentences as well. To reach its result, the majority twists the word "impose” so as to make it appear synonymous with only the initial decision to depart from the standard range. In reality, however, the imposition of an exceptional sentence has two components — the initial decision to depart and the length of the sentence selected outside the standard range. Trial courts should therefore consider the general purpose of the SRA when deciding both of these components. RCW 9.94A.120(2).
Moreover, RCW 9.94A.210(4) does not preclude consideration of the general purpose of the SRA on review. To the contrary, it sets up broad bases for reversal when either the reasons for imposing an exceptional sentence are not supported by the record or are legally insufficient or the sentence imposed is clearly excessive or too lenient. RCW 9.94A.210(4). The SRA does not define when the reasons provided are insufficient or the sentence clearly excessive or too lenient. This absence makes it clear that the courts are free to develop, and actually expected to develop, standards by which compliance with the SRA can be measured. See RCW 9.94A.210(6) (stating that opinions should be issued to provide guidance and develop a common law of exceptional sentencing); ABA Standards for Criminal Justice: Sentencing std. 18-8.2 (purpose of appellate review is "to develop a body of rational and just principles regarding sentences and sentencing procedures”). Inherent in any court’s analysis of *407these statutory directives is what the general purpose is of the statute it is construing. Elgin, at 555; State v. Fjermestad, 114 Wn.2d 828, 835, 791 P.2d 897 (1990); Shove, at 89 (arguing interestingly enough that "this court has always interpreted the SRA in a manner that ensures the structuring of trial court discretion”); Pud 1, at 369; ABA Standards for Criminal Justice: Sentencing std. 18-8.2 (appellate courts "should seek to make effective the legislature’s public policy choices regarding sentencing”). Furthermore, because trial courts must consider the general purpose of the SRA when imposing an exceptional sentence under RCW 9.94A.120(2) and appellate courts review these decisions, the general purpose of the SRA will necessarily have to be a part of appellate review. Thus, contrary to the majority’s position, reference to the general purpose of the SRA is necessary to any review under the SRA.
Second, the majority rejects a requirement that trial courts articulate reasons for the length of the exceptional sentences they impose. Majority, at 392. To support its position, the majority misinterprets the provisions of RCW 9.94A.120 which provide that trial courts must set out their reasons for imposing exceptional sentences. RCW 9.94A.120(2)-(3). As mentioned above, these provisions do not specify which aspects of an exceptional sentence must have reasons. Nor do the provisions state that only reasons for going outside the standard range must be provided. Instead, the provisions generally state that exceptional sentences must be justified by substantial and compelling reasons which consider the general purpose of the SRA and are set down in writing by the trial court. RCW 9.94A.120(2)-(3). Because the statute does not limit the aspects for which reasons need be provided, the statute should be read to require reasons for all aspects of exceptional sentences, including reasons for the length of the exceptional sentence imposed. See ABA Standards for Criminal Justice: Sentencing std. 18-5.19 (3d ed. 1994).
The majority goes on to say that legislative silence is indicative of the Legislature’s acquiescence in the abuse of *408discretion standard. The majority’s approach here misses the mark. Even assuming that the Legislature’s silence is meaningful, its silence does not dictate that this court reject a requirement that trial judges provide reasons for imposing the length of an exceptional sentence. Requiring reasons for the length of exceptional sentences is not a rejection of the abuse of discretion standard but merely gives content to that standard. See, e.g., ABA Standards for Criminal Justice: Sentencing stds. 18-5.19, 18-8.2 (using abuse of discretion standard for appeals but requiring sentencing courts to provide reasons for the length of sentences in order to insure meaningful appellate review). As such, this is not something the Legislature has had any reason to address. Furthermore, the method by which abuse of discretion is measured is arguably something the Legislature is not likely to speak to since it decided to leave the exceptional sentence arena largely to the interpretation of the courts.
No one, not even the majority, attempts to argue that trial judges have no reasons for the length of the sentence they impose. To require the articulation of those reasons makes sense so appellate courts can determine whether a trial court abused its discretion by relying on improper factors. See State v. Smith, 123 Wn.2d 51, 59, 864 P.2d 1371 (1993) (Madsen, J., dissenting); ABA Standards for Criminal Justice: Sentencing std. 18-5.19 commentary at 213 (stating that a statement of reasons for the sentence imposed is "essential to meaningful appellate review of sentences” and particularly important when departing from the presumptive range). A number of cases from the Court of Appeals have correctly recognized this. See, e.g., State v. Elsberry, 69 Wn. App. 793, 796, 850 P.2d 590 (1993) (reasons must be stated in the record); State v. George, 67 Wn. App. 217, 227, 834 P.2d 664 (1992) (record must reflect reasons), review denied, 120 Wn.2d 1023 (1993); State v. Dyer, 61 Wn. App. 685, 689, 811 P.2d 975 (some tenable basis must be in the record), review denied, 117 Wn.2d 1029 (1991); State v. Pryor, 56 Wn. App. 107, 118, 782 P.2d 1076 (1989) (record must reflect reasons), aff’d, 115 Wn.2d 445, 799 P.2d 244 (1990).
*409In other areas, where we review only for an abuse of discretion, this court has said that trial courts should state reasons so that appellate courts can examine the trial courts’ use of their discretion. For example, trial courts must specifically state the reasons for admitting certain kinds of evidence. See, e.g., State v. Jackson, 102 Wn.2d 689, 693-94, 689 P.2d 76 (1984) (requiring the court to identify the purpose for admitting evidence and balance prejudice on the record before admitting the evidence under ER 404(b)); State v. Alexis, 95 Wn.2d 15, 18-19, 621 P.2d 1269 (1980) (looking for balancing of probative value versus prejudice under ER 609). We have also required trial courts to record their reasons in a number of other areas where we review only for an abuse of discretion. See, e.g., Biggs v. Vail, 124 Wn.2d 193, 201, 876 P.2d 448 (1994) (requiring reasons for CR 11 sanctions); In re Schuoler, 106 Wn.2d 500, 513, 723 P.2d 1103 (1986) (requiring reasons for an order of electroconvulsive therapy for a nonconsenting patient). Yet under the majority’s ruling here, when imposing an exceptional sentence a court need only provide reasons for departing from the presumptive sentence range. One has to wonder why exceptional sentencing should be any different, particularly in light of the role which the SRA has given appellate courts.
More importantly, this court itself has in effect dictated that reasons be provided by defining clearly excessive sentences to be those shown to be "clearly unreasonable, i.e., exercised on untenable grounds or for untenable reasons, or an action that no reasonable person would have taken”. State v. Oxborrow, 106 Wn.2d 525, 531, 723 P.2d 1123 (1986) (quoting State v. Strong, 23 Wn. App. 789, 794, 599 P.2d 20 (1979)). How can one determine whether a sentence is clearly excessive because it was based on untenable grounds or reasons unless those reasons are stated? Logically, this court cannot avoid requiring reasons and yet still define abuse of discretion in this manner. Moreover, not requiring reasons effectively develops a scenario where appellate courts will examine any reasons articulated by the trial *410judge and may reverse, but where no reasons are stated, review will merely be perfunctory. Effectively this encourages trial courts not to specify any reasons and in fact creates a disincentive for doing so.
Providing reasons for the length of a sentence will also better accomplish the Legislature’s goals in the sentencing area while the majority’s result ignores the general purpose of the SRA altogether. Given the SRA’s interest in structuring discretion across the board, reasons should be provided so we can examine that discretion.1 See RCW 9.94A.010 (stating purpose is to structure discretion). Despite the majority’s assertions, the reasons for the length of an exceptional sentence are often not repetitive. For example, a trial court may not be able to depart for a particular reason, but it may feel that the reason requires a longer sentence once it has departed for other reasons. See, e.g., State v. McCune, 74 Wn. App. 395, 397-98, 873 P.2d 575 (stating that while not justified reasons for departing, future dangerousness and other factors reasonably related to the defendant’s culpability may be considered in setting length), review denied, 125 Wn.2d 1006 (1994); State v. Ross, 71 Wn. App. 556, 567-68, 861 P.2d 473, 883 P.2d 329 (1993) (allowing considerations of predatory behavior and dangerousness to influence sentence length for sexual offense where record did not support any finding of dangerousness that would justify departure); George, at 227 (noting that once departure is justified, other factors which are not sufficient to justify departure may be used to set the length of the sentence as long as they are related to the defendant’s culpability); State v. Hillman, 66 Wn. App. 770, 778, 832 P.2d 1369 (saying that future dangerousness would be a justified consideration when setting length in nonsexual cases), review denied, 120 Wn.2d 1011 (1992). To be able to determine whether the trial court has relied on appropriate factors, the reasons for exceptional sen*411tence length must be separately set out. Requiring reasons also fosters development of a principled common law on exceptional sentencing as the Legislature intended. Boerner §§ 9.1, 9.3.
Third, the majority rejects a "proportionality review”, a catchy term which misses the fact that proportionality need only be one of many factors that should be considered by trial courts and would only begin to give content to the abuse of discretion standard. Majority, at 396-97. Since this court retains ultimate authority to review the trial court, proportionality considerations need not force the comparison of cases that cannot be compared or ratchet sentences downward because of a low baseline either. The majority itself admits that trial courts are directed by the Legislature to consider the general purpose of the SRA. Majority, at 391. Included in the general purpose of the SRA is both the intent to "[ejnsure that the punishment for a criminal offense is proportionate to the seriousness of the offense and the offender’s criminal history” and to "[b]e commensurate with the punishment imposed on others committing similar offenses”. RCW 9.94A.010(1), (3). Therefore, proportionality will necessarily have to be considered by trial courts. Furthermore, the Legislature considers the general purpose of the SRA when it determines the appropriate standard ranges. When trial courts depart from these ranges, it necessarily falls to the trial courts to consider the general purpose since they will not have the benefit of the Legislature’s guidance as to appropriate length. Such consideration will better effectuate the intent of the SRA. See State v. Solberg, 122 Wn.2d 688, 710-12, 861 P.2d 460 (1993) (Madsen, J., dissenting) (arguing that, to fulfill the SRA’s general purpose, proportionality should be considered in some form). Trial courts should articulate their reasoning to this effect on the record to facilitate review.
The majority’s rejection of any consideration of proportionality on review principally relies on its erroneous assertion that the Legislature did not intend that proportionality be considered by the reviewing court. This analysis is not *412sound. Because trial courts are directed by Legislature to consider the purpose of the SRA when imposing exceptional sentences, an appellate court is expected to consider proportionality at least to the extent a trial court did when it selected the length of the exceptional sentence. Moreover, to consider the intentions of the Legislature when reviewing an exceptional sentence under the SRA would not create any new rules of statutory construction. It would instead be more consistent with longstanding principles of statutory construction than the majority’s result. See, e.g., In re Young, 122 Wn.2d 1, 22, 857 P.2d 989 (1993) (statute should be construed so as to best advance its legislative purposes); Spokane Cy. Health Dist. v. Brockett, 120 Wn.2d 140, 151, 839 P.2d 324 (1992) (preamble or statement of intent can be crucial to the interpretation of a statute); Pud 1, at 369 (language of a statute should be construed so as to be consistent with the general purpose of the enactment).
Next, the majority goes on to unjustifiably reject any comparison to the average sentence or standard range altogether. Majority, at 397. Once again, this court should give meaningful content to its abuse of discretion standard by encouraging trial judges to compare of the nature of the crime at issue to the typical crime. The standard ranges the Legislature has adopted for specific crimes provide a convenient and justified basis to use to compare sentences outside these ranges. Comparison to the standard ranges also more effectively insures that the Legislature’s intent is carried out. This comparison is no more arbitrary, and arguably less so, than court decisions without any relation to these standards. Besides, any comparison is only meant to be a guideline. Room for discretion remains and this court retains the power to determine if a sentence based on such a comparison is justified.2
*413Before reaching the merits of the individual cases, the majority makes one last remark which requires comment. It apparently believes its result justified because in most cases "trial courts in fact adhere to the scheme of sentencing provided by the SRA”. Majority, at 397. In effect the majority appears to be saying, whatever the length of these sentences, since the number is small there is no need to review the sentencing courts’ discretion. While perhaps persuasive to the majority, I cannot agree that the infrequency with which exceptional sentences are imposed justifies an abdication of our responsibility to review the individual cases before us as the majority does today. In fiscal year 1994 alone, at least 298 exceptional felony sentences were above the standard sentence range. Another 246 exceptional felony sentences were below the standard range.3 Washington Sentencing Guidelines Comm’n, A Statistical Summary of *414Adult Felony Sentencing: Fiscal Year 1994, at 19 (1995). If justified, these sentences would be acceptable, but the number alone does not make them justified. Each case should be examined on its own merits. Statistics do not insure justice.
Turning to the individual sentences in this case, the weakness of the majority’s standardless abuse of discretion review is evident. The majority simply recites the facts of each crime and concludes without further comment that the sentences are not clearly excessive. Majority, at 399-404. Had the sentencing courts here provided reasons which explained the length of the sentences they imposed, including an examination of factors such as the general purpose of the SRA and a comparison of standard ranges, this court could engage in a meaningful review. Unfortunately, these sentencing courts provided no reasons for the length of the sentences they imposed and did not themselves examine the purpose of the SRA as applied to their cases or make any sort of comparison. However, an appellate review of these sentences which looks at the objective factors outlined above reveals that at least two of the defendants have received excessive sentences.
Defendant Ritchie was charged with first degree rape of a child for digital penetration of a baby girl. Ritchie had an offender score of 0 with a resulting standard range of 62 to 82 months. Washington Sentencing Guidelines Comm’n, Implementation Manual IV-60 (1994). The maximum sentence for this class A felony offense is life imprisonment. RCW 9A.20.021(l)(a). The trial court imposed an exceptional sentence of 312 months (26 years), over three times the top of the standard range. Besides exceeding double the standard range, this sentence is excessive given Ritchie’s first offense status and the nature of the crime. Rape of a child in the first degree is committed when a defendant has "sexual intercourse” with a child less than 12 years old and the defendant was at least 24 months older than the victim. RCW 9A.44.073. Because his offense is defined as encompassing all "sexual intercourse”, Ritchie’s penetration of a *415baby with his little finger is not more extreme, and arguably less serious, than the typical offense contemplated by the SRA. RCW 9A.44.010(1). The trial court based the sentence length on its desire to protect the victim, arguing that Ritchie’s incarceration for this period would insure that the victim would have no contact with Ritchie prior to reaching adulthood. However, this reason is not sufficient to sustain Ritchie’s sentence since he was not a family member of the victim, only a friend whose future contact could easily be cut off. Moreover, Ritchie was 26 years old, had a college degree in psychology, was a chaplain’s assistant in the Army, and had never previously offended. By way of comparison, the sentence the trial court imposed falls within the standard range imposed for first degree murder despite the fact that here the child has recovered and because of her young age is unlikely to have any memory of the incident. The reason the trial court provided for the length of Ritchie’s sentence is therefore not sufficient to sustain such an excessive sentence. Ritchie’s case should be remanded for resentencing.
Defendant Hamrick was convicted of second degree assault of a young child. He had an offender score of 0 with a resulting standard range of 3 to 9 months. RCW 9.94A.310CL). Yet the trial court imposed an exceptional sentence of 84 months without giving any reasons for the sentence length. This is over nine times the upper end of the standard range and very close to the 10-year statutory maximum for this class B offense. RCW 9A.20.021(l)(b). This sentence well exceeds a doubling of the standard range. For a first-time offender, this sentence is also extremely close to the statutory maximum and extremely distant from the presumptive range. Another offender receiving the standard range for this offense would have to have nine or more convictions to receive such a lengthy sentence. Furthermore, the sentence imposed on Hamrick falls within the sentencing range of offenses such as first degree rape or attempted first degree assault of a child. Effectively, the trial court elevated Hamrick’s crime to a *416seriousness level of 11, a seriousness level which no class B offense reaches under the Legislature’s standards. Washington Sentencing Guidelines Comm’n, Implementation Manual IV-23 to -28. If Hamrick was effectively going to be punished for a class A felony, he should have been charged with such a crime. The trial court should not be allowed to get there under exceptional sentencing. Hamrick’s sentence is clearly excessive and should be remanded for resentencing.
Defendant Scott was convicted of the first degree murder of an elderly woman. He had an offender score of 0 with a resulting standard range of 240 to 320 months. Washington Sentencing Guidelines Comm’n, Implementation Manual IV-60. The trial court sentenced Defendant Scott to 900 months, nearly three times the top of the presumptive sentence range. Admittedly reasons existed for departing upward; however, the trial court provided no reasons for what is essentially life imprisonment without parole. Again, this sentence by far exceeds a doubling of the standard range. Additionally, it should be noted that the maximum term that can be imposed for such a class A felony is life imprisonment. RCW 9A.20.020. A sentence of 75 years effectively imposes the statutory maximum on 17-year-old Scott for his first offense. Effective life imprisonment without the possibility of release or parole is neither just nor fair when Scott was not charged with aggravated first degree murder.4 RCW 10.95.020(9). This case should therefore be remanded for resentencing. If the trial court continues to believe that an exceptional sentence is appropriate, it should articulate reasons for the duration of its sentence which consider the factors outlined above.
When looked at objectively, which we as a court must do to insure that the general purpose of the SRA is carried out, Ritchie’s and Hamrick’s sentences are clearly excessive and must be remanded for resentencing. Scott’s sentence should also be remanded for the trial court to reconsider the length of this sentence in light of the factors outlined here. Contrary *417to the majority, I would reverse the sentences imposed in these cases and remand for resentencing which includes a statement of reasons for the length of the sentence chosen.
Johnson, J., and Utter, J. Pro Tern., concur with Mad-sen, J.

One example of the kinds of proportionality standards that some courts have established is the Minnesota doubling rule. While this court has rejected the doubling rule as a presumption, there is no reason to foreclose trial courts from using a doubling approach as a guideline when determining the length of a sentence outside the standard range. Moreover, the decisions of this court *413rejecting the doubling analysis as a tool of review have by no means been unanimous. In both State v. Oxborrow, 106 Wn.2d 525, 723 P.2d 1123 (1986) and State v. Armstrong, 106 Wn.2d 547, 723 P.2d 1111 (1986), three Justices disagreed with the majority’s rejection and interpretation of the Minnesota rule. As Justice Utter explained, the doubling rule neither requires that courts "automatically impose twice the presumptive sentence” nor considers double the presumptive sentence to be "an absolute upper limit”. Oxborrow, at 544-45 (Utter, J., concurring in part, dissenting in part). The rule merely gives some guidance as to what is less likely to be considered an abuse of discretion while recognizing that not all cases fit the typical case it assumed when imposing the rule. The Minnesota rule "has helped Minnesota judges impose sentences that are more uniform and proportional, and empirically closer to the standards established by the Minnesota Legislature”. Oxborrow, at 545 (Utter, J., concurring in part, dissenting in part) (citing Kay A. Knapp, What Sentencing Reform in Minnesota Has and Has Not Accomplished, 68 Judicature 181, 187 (1984)). Even Justices Andersen and Brachtenbach recognized that sentences which were twice the presumptive standard would be less likely to be considered an abuse of discretion than sentences closer to the statutory maximum. Oxborrow, at 538-39 (Andersen, J., concurring). In both cases, the dissenting Justices also properly recognized that the majority’s abuse of discretion standard would "rarely, if ever,” allow an appellate court to overturn the sentence a trial court has imposed and that such a result was contrary to the intent of the SRA. Armstrong, at 553 (Goodloe, J., dissenting); see also Oxborrow, at 542 (Utter, J., concurring in part, dissenting in part).

In fiscal year 1994 alone then, the majority’s holding would leave the length of a total of 544 exceptional felony sentences without any meaningful appellate review.

Even assuming Scott received good time credit pursuant to RCW 9.94A.150, as a serious violent offender he would reduce his sentence by only 15 percent, or 11.25 years, and would still be in his eighties when released.