COMMONWEALTH vs. GERARD ROTONDA, THIRD

CORDY, J. The Commonwealth challenges the lawfulness of the terms and conditions imposed by a District Court judge in a continuance without a finding disposition made pursuant to G. L. c. 278, s. 18. It contends that such a continuance must include a condition of supervised probation, which this disposition did not, and also contends that it cannot be conditioned on the defendant's payment of money to the complaining victim,

Page 212

where restitution was neither an issue nor documented. The Commonwealth urges this court to vacate the disposition of the District Court and remand the case for trial. For the reasons set forth below, we find that the imposition of a condition of supervised probation is not a requirement of a continuance without a finding disposition made pursuant to G. L. c. 278, s. 18, but that the condition that a $5,000 payment be made to the complaining witness, in the circumstances of this case, is contrary to law and public policy. We therefore remand the case for further proceedings.

1. Procedural history. The Commonwealth sought relief from a single justice of this court pursuant to G. L. c. 211, s. 3. The single Justice twice remanded the matter to the District Court for the judge to make findings on the relevant, underlying facts and to answer specific questions regarding the reasoning for the judge's disposition. On receipt of the District Court judge's findings of fact and a statement of agreed facts of the parties, the single justice reserved and reported the matter to the full court without decision. [Note 1]

2. Facts. We recite the facts and exhibits as to which the parties have agreed. See Burke v. Commonwealth, 373 Mass. 157, 158 (1977). On December 22, 1998, the defendant, Gerard Ro-

Page 213

tonda, III, threatened and verbally accosted a traffic enforcement officer who had written him a parking ticket. After finding the ticket on his windshield, the defendant drove around the corner and confronted the officer, screaming invectives and racial slurs at her. Because the officer believed the defendant was going to hit her, she held down the transmit button on her radio so that others on the system could hear the altercation. The defendant eventually fled. The officer filed a complaint and the defendant was charged with violating the civil rights of another, without bodily injury, pursuant to G. L. c. 265, s. 37, and threatening to commit a crime pursuant to G. L. c. 275, s. 2.

On December 6, 1999, the scheduled trial date, the defendant asked the District Court judge to continue the case in order to investigate late night threatening telephone calls that the defendant had been receiving, some of which had been traced to the victim's place of employment. Defense counsel also claimed that he was prepared to present evidence that, during the pendency of the case, the defendant's automobile had been vandalized several times and the front door of his apartment had been kicked down twice. The judge advised the parties that he was prepared to grant the continuance based on those representations. The victim, through the Commonwealth, objected to the continuance and requested that the case proceed to trial. The judge then asked the parties to confer and attempt to resolve the case without a trial.

Following the conference, the parties reported to the judge that they were unable to agree on a disposition - the defendant seeking a continuance without a finding for one year, and the prosecution insisting on a finding of guilty with one year's probation.

At this point, defense counsel provided the court with information regarding the defendant's background, including his lack of a criminal record, bachelor's and master's degrees in business administration, employment in the financial services industry in Boston, and his receipt while in high school of a commendation for having initiated CPR on an Army lieutenant who suffered a heart attack on a public street. In addition, defense counsel informed the judge that the acts alleged "were

Page 214

not indicative of the [d]efendant's character," and that he recently had married a member of a minority group.

After further discussion regarding how the judge might rule on the pending motion for a continuance, the defendant admitted to sufficient facts and tendered pleas of guilty, as provided by G. L. c. 278, s. 18, together with a request that guilty findings not be entered and that the case be continued without a finding for one year. [Note 2] The Commonwealth recommended the entry of a guilty finding and a probationary sentence including community service. Following this exchange, the judge held a hearing during which the Commonwealth recited a summary of the facts underlying the charges, including the police report of the incident, and the victim made a statement about how the incident had affected her.

The judge found that the Commonwealth's recitation of facts was a sufficient basis to find the defendant guilty, and accepted the defendant's request, made over the Commonwealth's objection, to continue the case for one year without a finding, subject to certain conditions to be discussed below. In support of his decision to accept the defendant's terms, the judge found that the defendant readily admitted guilt and expressed contrition for his action; was a stranger to the victim and had not initiated further contact with her; had no prior involvement with the criminal justice system; held a responsible job in the financial services industry and the imposition of a guilty finding could affect his employment status and future employment; and did not present a danger to the victim. The judge also found that the

Page 215

incident was a single event lasting less than five minutes; that the Commonwealth was not seeking to have the defendant incarcerated; and that the interests of justice and the interest of the victim were protected by continuing the matter without a finding with the imposition of a "serious fine and conditions." [Note 3]

As provided in G. L. c. 278, s. 18, the judge then imposed a number of specific terms and conditions. The judge ordered that the defendant be placed on "unsupervised probation" for one year, on the condition that the defendant not have any contact with the victim, that he publicly apologize to her in front of her fellow employees and members of her union, and that he make a payment of $5,000 as "restitution" to her. [Note 4]

In overruling the Commonwealth's objection to this disposition, the judge ruled that it conformed to the requirements of G. L. c. 278, s. 18, and, because both charges were misdemeanors [Note 5] and did not implicate a mandatory minimum sentence, a continuance without a finding was not "otherwise prohibited by law." The judge further ruled that the defendant's request for probation without the requirement of reporting to a probation officer (unsupervised probation) was reasonable because of the defendant's lack of prior involvement with the criminal justice system, and further contact between the defendant and the victim was unlikely. The requirement to report in person or telephone to a probation officer was thus not in the interests of justice. The judge, however, imposed all the other standard

Page 216

conditions of probation on the defendant including the requirement that he maintain gainful employment; notify the probation officer of any change in status including employment or housing; and refrain from committing any local, State, or Federal crimes. [Note 6]

3. Lawfulness of the disposition. The Commonwealth challenges the legality of the judge's disposition, contending that a continuance without a finding imposing unsupervised probation and conditioning the continuance on the payment of money to the complaining witness does not comply with either the requirements we set out in Commonwealth v. Brandano, 359 Mass. 332, 337 (1971), or with G. L. c. 278, s. 18, and is thus unlawful. We need not reach the issue of the judge's compliance with Brandano's procedural requirements because we conclude that such compliance is not necessary when imposing a continuance without a finding without the consent of the Commonwealth so long as such actions are authorized by and consistent with G. L. c. 278, s. 18. See note 9, infra. Cf. Commonwealth v. Clerk of the Boston Div. of the Juvenile Court Dep't, 432 Mass. 693, 700 n.10 (2000) (not deciding whether Brandano procedures survived after promulgation of Mass. R. Crim. R 15, as appearing in 422 Mass. 1501 [1996], permitting Commonwealth to appeal from dismissals of complaints or indictments).

Continuances without a finding and admissions to sufficient facts have long been part of the District Court practice. Commonwealth v. Duquette, 386 Mass. 834, 837-838 (1982) (superseded by G. L. c. 278, s. 18). In Commonwealth v. Brandano, supra at 334-337, this court upheld the practice of continuing cases without a finding over the objection of the Commonwealth, provided certain procedural protections were met. Specifically, we held that the defendant must file an affidavit justifying dismissal to which the Commonwealth had a right to file a counter affidavit. Id. at 337. The judge must then hold a hearing as to the matters that are in dispute, decide whether "the interests of public justice" require a dismissal,

Page 217

and make written findings. We also held that the Commonwealth had a right of appeal. Id. We reasoned that if these steps were followed the disposition of continuance without a finding over the objection of the Commonwealth would not be constitutionally offensive. See id. at 336-337. The Brandano decision governed the practice of continuing cases without a finding until the Legislature rewrote G. L. c. 278, s. 18, in 1992 to provide statutorily for these dispositions. St. 1992, c. 379, s. 193 (effective January 1, 1994).

As amended, G. L. c. 278, s. 18, authorized the District Court, in some circumstances, to continue cases without entering a finding of guilt "to a specific date thereupon to be dismissed." Such continuances are to be conditioned either on compliance with specific terms and conditions set by the District Court or, in the alternative, by placing the defendant on probation during the period of the continuance pursuant to the provisions of G. L. c. 276, s. 87. [Note 7] We upheld the constitutionality of the newly rewritten statute in Commonwealth v. Pyles, 423 Mass. 717, 723 (1996). [Note 8]

In the Pyles case, this court stated that the Legislature was "undoubtedly aware of the decision in the Brandano case which created a practice concerning the dismissal of the criminal charge after a continuance that has been used for twenty-five years without substantive challenge." Id. at 722. The words of the statute, however, do not incorporate the Brandano procedures including the requirements of affidavits, a hearing, and written findings by the judge that the disposition was in the interests of public justice. Because the Legislature did not include them in the codification of this practice, we find no reason to superimpose the Brandano procedures on dispositions made under G. L.

Page 218

c. 278, s. 18. [Note 9] We now proceed to analyze whether the judge's disposition complied with the statute.

a. Imposition of unsupervised probation. The Commonwealth argues that the judge erred when he imposed "unsupervised probation" because a continuance without a finding over the Commonwealth's objection must include a term of supervised probation. If it does not, the disposition amounts to a nolle prosequi which is within the exclusive power of the prosecution, thereby violating the separation of powers principles in art. 30 of the Massachusetts Declaration of Rights. [Note 10] We disagree.

First, the plain words of the statute do not require the imposition of supervised probation as a requirement of a continuance without a finding. Rather, G. L. c. 278, s. 18, provides that such a continuance may be "conditioned upon compliance with specific terms and conditions or that the defendant be placed on probation" (emphasis added). Probation (supervised or unsupervised) is not a requirement of the statute, but an alternative to other conditions which the judge might find more appropriate. See commentary to Rule 9 of the District Court Rules for Probation Violation Proceedings (2001) (stating that continuance without finding may be imposed with or without probation). To hold otherwise would convert the disjunctive "or" into the conjunctive "and," something for which there is no basis or logic.

Here, the judge conditioned the continuance on the defendant's having no contact with the victim, his public apology to the victim, and the payment of $5,000. These conditions were tailored to the judge's view of the particular requirements and

Page 219

circumstances of the case. [Note 11] The fact that he also imposed "unsupervised probation," is additive, not required by the statute, and clearly does not create any further obligation that probation be "supervised." [Note 12]

Second, as we held in Commonwealth v. Pyles, supra at 723, s. 18 "does not in effect authorize the entry of an improper nolle prosequi," but represents "a valid exercise of legislative authority and, as a consequence . . . the judge's disposition did not infringe on the district attorney's rights as protected by art. 30." The Commonwealth makes the same argument rejected in the Pyles case, where it challenged the constitutionality of the statute. There is nothing in the facts or the procedures followed in this case to distinguish it from the situation in Pyles. [Note 13] Therefore, we reject the Commonwealth's argument for the reasons set forth more fully in Commonwealth v. Pyles, supra.

The judge followed the procedures set forth in G. L. c. 278, s. 18, for considering a guilty plea in the circumstances where the Commonwealth and the defendant do not agree on an appropriate disposition. He held a hearing, at which the Commonwealth and the defendant (and in this case the victim) had

Page 220

an opportunity to present their arguments, and he imposed a continuance without a finding with a number of specific conditions. He found that the disposition was in the interests of justice for reasons he set forth in the record. He violated neither the statute nor art. 30.

We now turn to one of the specific conditions imposed.

b. Monetary payment to the victim. "Any act which is made punishable by law as a crime is an offence against the public, and, especially in this country, where all prosecutions are subject to the control of official prosecutors, and not of the individuals immediately injured, cannot lawfully be made the subject of private compromise, except so far as expressly authorized by statute. And this view is supported by the great weight of American authority." Partridge v. Hood, 120 Mass. 403, 407 (1876).

This bedrock principle of American justice is important for several reasons. Private payments exchanged for releases from criminal responsibility erode, if not completely erase, the demarcation between the criminal and civil systems of justice and "benefit the individual at the expense of defeating the course of public justice." Id. at 405. Moreover, such payments create the perception that a class-based criminal justice system exists and that those with resources may buy their way out of criminal liability. Our law does not countenance payments directed to private parties for the purpose of or in connection with the termination of criminal proceedings absent clear statutory authority for such payments, and we are not disposed to construe such statutory provisions beyond their expressed purposes and specific requirements. Although G. L. c. 278, s. 18, does not enumerate, define, or limit the scope of the terms and conditions that the District Court may impose, the judge's imposition of the condition of a payment to the complaining witness is contrary to the public policy embodied in this principle, and, in the circumstances of this case, is without support in any statutory provision.

If it was the judge's intention to impose a financial penalty on the defendant, he could have accomplished that legitimate objective by requiring the defendant to pay the "reasonable and actual expenses of the prosecution," pursuant to G. L. c. 280,

Page 221

s. 6. [Note 14] These expenses could have been significant, but would have been paid to the Commonwealth rather than to the complaining witness.

To the extent that the judge wanted to ensure that the victim of the defendant's conduct was made whole and was reimbursed for any economic loss caused by the defendant's actions and by the consequent prosecution of the case, he could have directed that restitution be calculated and made a requirement of the final disposition, for restitution is an appropriate consideration in sentencing. Commonwealth v. Nawn, 394 Mass. 1, 6 (1985). Victims are entitled to request restitution and judges are empowered to impose it pursuant to G. L. c. 258B, s. 3 (o). [Note 15] The purpose of restitution, however, is to compensate the injured party for losses incurred as a result of the defendant's criminal conduct. It is not to reward or create an incentive for the dismissal of criminal charges. The payment of restitution is limited to the economic losses caused by the conduct of the defendant and documented by the victim. See G. L. c. 258B, s. 3 (o); Commonwealth v. Nawn, supra at 7-8 (amount must be subject to proof of economic loss). Cf. Commonwealth v. Yeshulas, 51 Mass. App. Ct. 486, 492 (2001) (in setting restitution order in arson case, proper for judge to rely on fire department, with no stake in amount, to estimate loss to victim).

While such items as medical expenses, court-related travel expenses, property loss and damage, lost pay, or even lost paid vacation days required to be used to attend court proceedings might all be included in an appropriately documented restitution order, this was not the case here. A dollar amount was selected without regard to any fact other than whether it might "satisfy" the victim in this case. [Note 16], [Note 17]

Page 222

For these reasons we find that the imposition of a financial payment to be made to a complaining witness as a condition of the continuance without a finding and dismissal, in the circumstances of this case, was contrary to law and public policy and not authorized by the court's power to impose terms and conditions on a continuance without a finding disposition as provided in G. L. c. 278, s. 18.

5. Conclusion. The District Court judge's disposition pursuant to G. L. c. 278, s. 18, did not require the imposition of supervised probation as a term or condition of his continuing the case without a finding, but was unlawful in so far as it included a condition requiring the payment of money, not properly documented as restitution, to a complaining victim. We remand this case to the county court for entry of a judgment remanding the case to the District Court for further proceedings consistent with this opinion. [Note 18]

So ordered.