Commonwealth v. Dayton

75 N.E.3d 600, 477 Mass. 224
CourtMassachusetts Supreme Judicial Court
DecidedJune 1, 2017
DocketSJC 12213
StatusPublished
Cited by7 cases

This text of 75 N.E.3d 600 (Commonwealth v. Dayton) is published on Counsel Stack Legal Research, covering Massachusetts Supreme Judicial Court primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Commonwealth v. Dayton, 75 N.E.3d 600, 477 Mass. 224 (Mass. 2017).

Opinions

Hines, J.

A Superior Court judge reported the question whether G. L. c. 276, § 58A, permits the Commonwealth to seek pretrial detention without bail where a defendant has two prior convictions of operating a motor vehicle while under the influence of alcohol (OUI), G. L. c. 90, § 24, and is charged with OUI, third offense. Because § 58A requires three OUI convictions before a defendant can be so detained, we answer the question in the negative.

Background. In October, 2015, the defendant, Timothy O. Dayton, was charged in the Superior Court with eight motor vehicle violations, including two indictments for OUI, third offense, in relation to two separate incidents pending in the District Court. Each OUI indictment alleged that Dayton had been convicted of OUI twice before — in 1988 and in 1989.

The Commonwealth moved for a dangerousness hearing pursuant to § 58A. The defendant opposed the motion, arguing that [225]*225§ 58A permits a dangerousness hearing only after three prior OUI convictions, not two.

A Superior Court judge initially agreed with the defendant, and denied the Commonwealth’s motion and its motion for reconsideration. However, the Commonwealth sought review by a single justice of this court, pursuant to G. L. c. 211, § 3. The single justice ordered the judge to hold the dangerousness hearing, at the same time acknowledging that the language of § 58A was “unclear” and noting that the judge was “not precluded from reporting the question to the [Appeals Court].”

After hearing, the judge determined that the defendant was dangerous within the meaning of § 58A and ordered him held without bail pending trial. On the defendant’s motion, the judge reported the following question to the Appeals Court:

“Whether a defendant with two prior convictions for [OUI], pursuant to G. L. c. 90, [§ 24 (1) (a) (1)], who is arrested and charged with [OUI], [t]hird [o]ffense, may be held without the right to bail pursuant to G. L. c. 276, [§ 58A (1)].”

Before the question was resolved, the defendant pleaded guilty to the eight pending charges.1 We subsequently transferred the reported question to this court on our motion.

Discussion. Primarily, the Commonwealth argues that the OUI clause of § 58A, and our cases discussing it, permit pretrial detention when a defendant has only two prior OUI convictions. The OUI clause of § 58A provides, in relevant part, that the Commonwealth may seek detention based on dangerousness when a defendant is “arrested and charged with ... a third or subsequent conviction for a violation of [G. L. c. 90, § 24].” G. L. c. 276, § 58A (1).

We begin with the language of the statute itself, and “presume, as we must, that the Legislature intended what the words of the statute say.” Commonwealth v. Williamson, 462 Mass. 676, 679 (2012), quoting Commonwealth v. Young, 453 Mass. 707, 713 (2009). “[C]lear and unambiguous” statutory language must be given its ordinary meaning (citation omitted). Williamson, supra. [226]*226However, where the language of a criminal statute plausibly can be found ambiguous, the rule of lenity requires that the defendant receive the benefit of the ambiguity.2 Commonwealth v. Constantino, 443 Mass. 521, 525 (2005).

The OUI clause of § 58A is ambiguous. Even setting aside the significant syntactical defects that arise when the OUI clause is read in the entire context of § 58A (1), we do not know what it means to be “arrested and charged with” a “conviction.” G. L. c. 276, § 58A (1). This formulation is at war with itself. Although it hardly needs explication, being “arrested” and “charged” with a crime is wholly distinct from a “conviction” for that crime. See Black’s Law Dictionary 130 (10th ed. 2014) (“arrest” is “the apprehension of someone for the purpose of securing the administration of the law, esp. of bringing that person before a court”); id. at 282 (“charge” is “[a] formal accusation of an offense as a preliminary step to prosecution”); id. at 408 (“conviction” contemplates “the state of having been proved guilty”). Given this ambiguity, we interpret § 58A as requiring three, not two, prior OUI convictions.3

In essence, the Commonwealth asks the court to avoid this ambiguity by performing surgery on the OUI clause — removing the words “conviction for a” and leaving behind “arrested and charged with ... a third or subsequent. . . [OUI] violation.” This we cannot do. See, e.g., Commonwealth v. Daley, 463 Mass. 620, 623 (2012) (when interpreting statute, no words are to be regarded as superfluous). The defendant, on the other hand, proposes that the plain language of the OUI clause contemplates a situation where an indictment for OUI, fourth offense, “charges” a defendant with his three prior OUI convictions. Although that suggestion seems plausible based on the indictments in this case, the language of § 58A leaves us unsure whether this is really what the Legislature had in mind. In any event, it comports with our [227]*227conclusion under lenity principles.

The Commonwealth also argues that its interpretation finds support from a comparative reading alongside the other predicate offenses in § 58A, as well as alongside the “escalating penalty structure” for OUI, third offense, in G. L. c. 90, § 24. However, these provisions deepen, rather than resolve, the ambiguity. For instance, the increasing penalties for OUI offenses can just as easily be read as support for the defendant’s position — that only when a defendant reoffends after facing the more severe penalties attached to a third OUI conviction is the defendant dangerous enough to potentially merit pretrial detention. This argument also mistakenly assumes that § 58A is punitive in nature, when instead it presumes a defendant’s innocence and focuses on protecting the public and ensuring the defendant’s appearance at trial. See Commonwealth v. Madden, 458 Mass. 607, 610 (2010).

Notwithstanding this ambiguity, the Commonwealth points out that this court has, on two prior occasions, appeared to endorse the Commonwealth’s reading of § 58A. See Commonwealth v. Young, 453 Mass. 707, 715-716 (2009) (pretrial detention possible when individual is arrested and charged with violation “that could result in a third or subsequent [OUI] conviction”); Commonwealth v. Dodge, 428 Mass. 860, 864 n.7 (1999) (§ 58A “specifically includes charges that could result in a third or subsequent [OUI] conviction”). The Commonwealth concedes that this language in Young and Dodge was “initially dicta.” However, it argues that the Legislature, by readopting § 58A in the wake of those cases — and without changing the OUI clause — has adopted our dicta.

This argument fails. The Commonwealth is correct that we “presume that when the Legislature amends a statute it is ‘aware of the prior state of the law as explicated by the decisions of this court,’ . . . and where it has reenacted statutory language without material change, [the Legislature is] ‘presumed to have adopted the judicial construction put upon it’ ” (citations omitted). Commonwealth v. Colturi, 448 Mass. 809, 812 (2007).

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Bluebook (online)
75 N.E.3d 600, 477 Mass. 224, Counsel Stack Legal Research, https://law.counselstack.com/opinion/commonwealth-v-dayton-mass-2017.