Bolduc v. United States

265 F. Supp. 2d 153, 2003 U.S. Dist. LEXIS 11572, 2003 WL 21537903
CourtDistrict Court, D. Massachusetts
DecidedJuly 2, 2003
DocketCIV.A. 01-11376-PBS
StatusPublished
Cited by5 cases

This text of 265 F. Supp. 2d 153 (Bolduc v. United States) is published on Counsel Stack Legal Research, covering District Court, D. Massachusetts primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Bolduc v. United States, 265 F. Supp. 2d 153, 2003 U.S. Dist. LEXIS 11572, 2003 WL 21537903 (D. Mass. 2003).

Opinion

MEMORANDUM AND ORDER

SARIS, District Judge.

Introduction

Plaintiffs Frank Bolduc and Francis Larkin 1 bring this action under the Federal Tort Claims Act (“FTCA”), 28 U.S.C. §§ 1364(b), 2671-80 (2002), alleging they spent eight years serving prison sentences for crimes they did not commit — the attempted robbery of one Wisconsin bank (the “Southgate bank”) and the robbery of another (the “Oklahoma Avenue bank”)— because of the negligence of the Federal Bureau of Investigation. Now exonerated by the confessions of the real “Trench Coat Robbers,” Bolduc and Larkin claim that FBI Special Agent Daniel S. Craft negligently failed to give the federal prosecutors exculpatory evidence that three eyewitnesses to the attempted robbery of the Southgate bank had identified other people as the culprits, and that Craft’s superiors negligently supervised him.

This case raises several difficult legal questions, including whether Wisconsin law, which the FTCA incorporates here as the “law of the place,” see 28 U.S.C. § 1346(b), allows for a negligence claim against law-enforcement personnel for mishandling investigative reports, and whether the FTCA’s “discretionary function” exception, see 28 U.S.C. 2680(a), bars such a claim against a law-enforcement officer. But the Court need not reach these legal questions, in light of its factual findings.

After trial, the Court concludes that the FBI likely failed to provide the exeulpato-ry evidence on the Southgate bank robbery to the prosecutors or defense attorneys before the trial of Bolduc and Larkin. Plaintiffs, however, did not prove that the FBI’s failure caused them harm, because while the exculpatory Southgate evidence probably would have resulted in an acquittal on the Southgate charges, plaintiffs have not shown that the Southgate evidence likely would have effected an acquittal on the Oklahoma Avenue charges, which themselves carried lengthy prison sentences. Moreover, even if Bolduc and Larkin had been acquitted on all charges in Wisconsin, they would have been prosecuted and convicted for the robbery of an armored car in Chelmsford, Massachusetts. In short, Bolduc and Larkin would have spent the same amount of time in jail, even had they been given the exculpatory Southgate evidence.

With that said, the FBI’s actions in the Wisconsin bank-robbery cases left much to be desired. Agent Craft likely intentionally withdrew another FBI agent’s reports from the Wisconsin case file, and also negligently failed to send his own reports to the case file. The FBI’s subsequent investigation of this matter was deficient: Six days after Craft voluntarily retired from the FBI on January 3, 2003, investigators advised closure of the investigation, stating, “captioned employee [Craft] retired (voluntarily) from the FBI, while under administrative inquiry, effective close of business 1/3/03. Therefore, it is recommended that captioned investigation/adjudication be closed prior to completion.” (Pis.’ Ex. 19.) Though Craft claims his retirement had nothing to do with the investigation into his conduct, his retirement was abrupt; as of October 2002, he had no intention of retiring. The investi *155 gation was closed “without findings” after Craft’s retirement. The FBI should be more accountable in investigating a failure to turn over exculpatory evidence in a serious criminal prosecution.

Findings of Fact

I. The Wisconsin Bank Cases

A. The Attempted Robbery of the Southgate Bank

On June 28,1988, two middle-aged white men attempted to rob the First Wisconsin Bank at the Southgate Mall in Greenfield, Wisconsin. They failed, because the vault had already been locked for the night.

The FBI ease agent in charge of the investigation was Agent Craft. Craft was assisted by a new Special Agent, Derrel S. Craig, who had been on the job just a few weeks. Craft was the acting supervisor of the Milwaukee bank-robbery unit, and he supervised Craig. Craft considered the Southgate robbery a “nothing robbery” because there was no loss to the bank. Because so little was at stake, Craft initially let Craig “run with” the investigation. Craft, however, reviewed and initialed all investigative reports — “302 reports,” in FBI parlance — before the reports became part of the official file for the Southgate case.

As background, Craft was a committed agent who was willing to violate FBI policies when he believed it was in the interest of justice. For example, he violated FBI policies in order to get a confession in an investigation involving the murder of a child in Minnesota.

1. The Eyewitness-Identification 302 Reports

On November 15, 1988, Agents Craft and Craig showed a photographic array of possible suspects to four eyewitnesses from the Southgate bank: Michael Dams, Robert Wesolowski, Jami Wiseman (now Radtke), and Judith Webb. None of the photographs depicted Bolduc or Larkin, or the men who turned out to be the actual culprits. Dams and Wesolowski identified the photographs of Allan Daniel Wilwerd-ing and Douglas Wayne Thompson as the individuals who had attempted to rob the bank. Wiseman identified Wilwerding. Judith Webb identified nobody.

Craft and Craig dictated 302 reports describing the identifications by Dams, Wesolowski, and Wiseman; the reports state they were transcribed on November 30, 1988. Two sets of 302 reports were generated: one by Craft, and one by Craig. The two sets of reports differed in the degree of certitude attributed to the witnesses’ identifications: Craig’s reports stated the witnesses identified Wilwerding and Thompson as “identical” to the culprits, while Craft’s reports stated that the witnesses identified Wilwerding and Thompson as “similar” to the culprits. For example, Craig’s 302 report for Weso-lowski stated:

The following photo spread was shown to ROBERT WESOLOWSKI, Manager, First Wisconsin Bank, Southgate, in attempt to identify the unknown subjects (unsubs) who robbed that institution on June 28, 1988. After viewing the below listed photographs, WESOLOWSKI identified the photograph of ALLAN DANIEL WILWERDING and DOUGLAS WAYNE THOMPSON as being identical with the two individuals who robbed them on June 28,1988:
MANFORD WILBER SCHMIDT, ROBERT WOLFGANG SCHMIDT, JACK KUPPER, PATRICK MICHAEL MITCHELL, DOUGLAS WAYNE THOMPSON, ALLAN DANIEL WILWERDING, and MICHAEL SAVAGE.
*156 After identifying the photos of THOMPSON and WILWERDING, WESOLOW-SKI initialed and dated the back of the two photographs.

(Pis.’ Ex. 1.) In contrast, Craft’s 802 report for Wesolowski stated:

The following photo spread was shown to ROBERT WESOLOWSKI, Manager, FIRST WISCONSIN BANK SOUTH-GATE, in an attempt to identify the unknown subjects (unsubs) who robbed that institution on June 28, 1988.

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Bluebook (online)
265 F. Supp. 2d 153, 2003 U.S. Dist. LEXIS 11572, 2003 WL 21537903, Counsel Stack Legal Research, https://law.counselstack.com/opinion/bolduc-v-united-states-mad-2003.