Betances v. Fischer

837 F.3d 162, 2016 U.S. App. LEXIS 16946, 2016 WL 4926153
Court of Appeals for the Second Circuit·Decided September 16, 2016·No. No. 15-2836-cv·Published·Cited by 21 cases

Opinion

JOHN M. WALKER, Jr., Circuit Judge:

In Earley v. Murray, 451 F.3d 71 (2d Cir. 2006) (“Earley I"), we held that the New York State Department of Correctional Services’s (“DOCS”) practice of administratively adding a term of post-release supervision (“PRS”) to sentences in which PRS had not been imposed by the sentencing judge and the New York State Division of Parole’s (“DOP”) practice’ of enforcing the administratively added PRS terms violated the Constitution. Notwithstanding their, awareness of our holding, defendants DOCS officials Anthony J. An-nucci and Brian Fischer and DOP official Terence Tracy decided not to follow it and only did so after the New York Court of Appeals invalidated the administrative practice more than 22 months later. The plaintiffs, offenders who had been subject to PRS in violation of Earley I, sued the defendants for the actions they took in violation of Earley I and moved for summary judgment. The district court (Scheindlin, J.) granted the motion. The defendants appeal the grant of summary judgment and also argue that the district court erred in granting plaintiffs’ motion to deem the appeal frivolous so that the district court could retain jurisdiction and proceed with a. trial on damages. We AFFIRM.

BACKGROUND

I. Determinate Sentencing and Post-Release Supervision in New York

In 1998, the New York State Legislature amended the sentencing scheme for violent felons to require that every determinate sentence of imprisonment for a violent felony be followed by a PRS term. N.Y. Penal Law § 70.45(1). The statute fixes the length of PRS terms for certain crimes and provides a range of permissible lengths for others, leaving the ultimate determination to the sentencing judge. Id. §70.45(2), (2-a). During the time period relevant to this case, the Division of Parole (“DOP”) and Board of Parole (“BOP”) established and enforced the conditions of PRS terms and the Department of Correctional Services (“DOCS”) reincarcerated [165]*165felons who .'violated these conditions. Id. § 70.45(3).1

Although § 70.45(1) requires sentencing courts to “state not only the term of imprisonment, but also an additional period of post-release supervision,” some judges did not pronounce PRS terms during sentencing proceedings. As a result, certain inmates entered DOCS custody with sentence and commitment orders that informed DOCS employees of the term and conditions of the inmate’s sentence, but failed to include PRS terms required by § 70.45. Instead of bringing the failure to the attention of the sentencing, court, DOCS simply added the PRS term administratively.

When DOCS first took custody of .an inmate, it received the inmate’s sentence and commitment order. DOCS employees routinely entered information about the inmate’s sentence from this document into the DOCS computer system. If a sentence and commitment order did not include the PRS term that §70.45 required, DOCS employees, following guidelines issued by DOCS, entered for the inmate the shortest PRS term permitted by § 70.45.

Upon their release from prison, the inmates began to serve their PRS terms under DOP supervision. Approximately 45 days before an inmate left prison, DOCS employees calculated the specific dates on which that inmate’s PRS would begin and end and furnished these dates to DOP employees. Before beginning supervision of an inmate, a DOP parole officer would meet with the inmate to discuss the inmate’s plans for his release and the conditions of his PRS. At the same time DOP provided the inmate with a document containing information about the inmate’s crime and sentence, including his release date and the date on which any PRS would expire. DOCS and DOP were authorized to reincarcerate an offender who, after a hearing, was found to have violated the conditions of his release.

II. Our Decision in Earley v. Murray

On June 9, 2006, we decided Earley v. Murray, 451 F.3d 71 (2d Cir.) (“Earley I”), reh’g denied, 462 F.3d 147 (2d Cir. 2006) (“Earley IF), in which we addressed for the first time the constitutionality of DOCS’s practice of adding a PRS term to a sentence in cases where § 70.45 required it but the sentencing judge had not imposed it. Earley pleaded guilty to attempted burglary and was sentenced to six years in prison. Earley I, 451 F.3d at 73. The sentencing judge failed to include PRS in the sentence he pronounced in court and neither the written judgment nor the written order of commitment indicated that PRS was to be a part of Earley’s sentence, notwithstanding the requirement under § 70.45 that he serve a term of PRS upon the conclusion of his term of imprisonment. Id. While he was incarcerated, Ear-ley became aware that DOCS had administratively added a five-year PRS term to his sentence. Id. After exhausting his state court remedies, Earley filed a habeas petition in federal court arguing that DOCS’s administrative imposition of PRS violated his due process rights. Id.

We agreed with Earley that the Constitution forbids DOCS from modifying a sentence imposed by a judge, even though § 70.45 required that PRS be a part of his sentence. Id. at 74-76. Because Earley’s PRS term had not been imposed by the judge, PRS was never part of his sentence [166]*166and the PRS term was a “nullity.” Id. at 76. We remanded the case to the district court for a determination of whether Earley had timely filed his habeas petition; if so, the district court was “to issue a writ of habeas corpus excising the term of post-release supervision from Earley’s sentence and relieving him of any subsequent penalty or other consequence of its imposition.” Id. at 76-77. We also noted that “[o]ur ruling is not intended to preclude the state from moving in the New York courts to modify Earley’s sentence to include the mandatory PRS term,” although we left it to the state courts to determine if such a motion would be timely. Id. at 77 & n.2. On August 31, 2006, we denied the defendants’ motion for rehearing in Earley II.

III. The General Response to Earley I

The holding in Earley I was met with resistance at the state level. Certain district attorneys expressed them disagreement with our holding. Officials in the Office of Court Administration (“OCA”), the administrative division of the New York state court system, took the position that the opinion in Earley I was not binding on state courts and issued a memorandum to judges expressing this view. OCA nevertheless urged courts to pronounce PRS terms going forward until the New York Court of Appeals had the opportunity to weigh in.

New York courts were inconsistent in adhering to Earley I’s holding. The Second and Fourth Departments applied Earley I from the outset. See People v. Smith, 37 A.D.3d 499, 499, 829 N.Y.S.2d 226 (2d App. Div. 2007); People ex rel. Burch v. Goord, 48 A.D.3d 1306, 1307, 853 N.Y.S.2d 756 (4th App. Div. 2008). The First and Third Departments did not apply

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Betances v. Fischer, 837 F.3d 162, 2016 U.S. App. LEXIS 16946, 2016 WL 4926153 (2d Cir. 2016).

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