PETER RUGGIRELLO, APPELLANT,
v.
JULIE L. JONES, SECRETARY, FLORIDA DEPARTMENT OF CORRECTIONS, APPELLEE

Fla. 1st DCA | 2016-10-26
No. 1D16-1269
WOLF and OSTERHAUS, JJ., concur.
202 So. 3d 935 Florida District Court of Appeal, First District (2016) Positive Treatment
Cited by 3 cases

AI-generated. These summaries, headnotes, and key points are machine-generated and may contain errors or omissions. Always verify against the full opinion text below. Not legal advice.

Synopsis

Ruggirello, a prisoner serving a life sentence, appealed the dismissal of his mandamus petition seeking to compel the Department of Corrections to recommend commutation of his sentence, and challenged a lien placed on his inmate account for court costs. The court held that clemency proceedings are not 'collateral criminal proceedings' exempt from the lien requirement under Florida law, and affirmed both orders.


Holding

The court held that clemency proceedings are not 'collateral criminal proceedings' under section 57.085(10) because clemency exists outside the legislatively- and judicially-controlled legal requirements for sentencing and release. Additionally, even if clemency could be considered a collateral criminal proceeding, a DOC recommendation for clemency does not directly affect the length of time an inmate will spend in prison, since the Governor retains 'sole, unrestricted, unlimited discretion' in granting clemency.


Headnotes

[1] A petition seeking a recommendation for commutation of a sentence, which is an executive function, is not a collateral criminal proceeding for purposes of statutory exemp…

[2] Executive clemency, derived solely from the Florida Constitution, is vested exclusively in the executive branch and is separate from judicial or legislative sentencing an…

Previewing 2 of 6 headnotes on this case. FLexlaw’s editorially structured points of law — every proposition, pinpointed — are reserved for members.

Join FLexlaw to unlock all legal intelligence

Key Quotes

“The clemency process in Florida derives solely from the Florida Constitution and we have recognized that the people of the State of Florida have vested 'sole, unrestricted, unlimited discretion exclusively in the executive in exercising this act of grace.'”

Establishes that clemency is an exclusively executive power with unlimited discretion, separate from judicial and legislative spheres.

Previewing 1 of 3 key quotes on this case — the court’s exact language, pinpointed for members.

Join FLexlaw to unlock all legal intelligence

Facts & Procedural History

Ruggirello filed a mandamus petition seeking to compel the DOC to recommend commutation of his life sentence to a term of years under section 944.30, …

The full statement of facts, procedural history, and disposition for this case are member content.

Join FLexlaw to unlock all legal intelligence

© FLexlaw, Inc. — AI-generated enrichments are proprietary. All rights reserved.


Opinion of the Court
WINOKUR, J.

WINOKUR, J.

This is an appeal of an order dismissing Appellant Ruggirello’s petition for writ of mandamus seeking a recommendation for commutation of his life sentence to a term of years as moot, and a separate order placing a hen on his inmate account. We find that the court correctly concluded that Ruggirello’s mandamus petition was not a “collateral criminal proceeding” and that the petition was therefore subject to a hen for costs and fees under section 57.085(5), Florida Statutes. Ruggirello does not challenge the finding that his mandamus petition was. moot. Accordingly, we affirm both orders.

*937I.

Ruggirello filed a mandamus petition seeking to compel the Department of Corrections (“DOC”) to recommend “executive clemency/commutation” of his life sentence to a term of years, pursuant to section 944.30, Florida Statutes. In response, DOC made the requested recommendation and then moved to dismiss the mandamus petition as moot. The court dismissed the petition as moot, but by separate order, found Ruggirello to be indigent and placed a lien on his inmate account pursuant to section 57.085(5). The court denied Ruggi-rello’s motion for rehearing challenging the lien. Ruggirello filed a petition for writ of certiorari in this Cdurt, which this Court converted to an appeal.

Ruggirello argues that his mandamus petition constituted a collateral criminal proceeding and was therefore exempt from the lien provision of section 57.085(5). DOC filed a concession of error, agreeing with Ruggirello that the petition below should have qualified as a lien-exempt collateral criminal proceeding under Schmidt v. Crusoe, 878 So.2d 361 (Fla.2003), and Geffken v. Strickler, 778 So.2d 975 (Fla.2001). We cannot agree, and therefore reject the concession of error.

When an indigent prisoner initiates a judicial proceeding, section 57.085(5), Florida Statutes, requires the court to order the inmate to make payments from the inmate’s trust account for court costs and fees, and requires DOC to place a lien on the trust account. Subsection (10) provides that the lien requirement “does not apply to a criminal proceeding or a collateral criminal proceeding.” A proceeding is a “criminal proceeding or a collateral criminal proceeding” under this statute where an “inmate’s time in prison is directly affected” by the outcome. Schmidt, 878 So.2d at 367. See also McNeil v. Cox, 997 So.2d 343, 348 (Fla.2008) (defining collateral criminal proceedings as “all claims that, if successful, will directly affect ‘the length of time the inmate'will actually spend in prison’”) (citing Schmidt, 878 So.2d at 366). Accordingly, Ruggirello is exempt from the lien requirement of section 57.085(5) only if his petition to compel DOC to make a recommendation for clemency pursuant to section 944.30 would, if successful, directly affect the length of time he will actually spend in prison.

At the time of Ruggirello’s offense, section 944.30, Florida Statutes (1983), read in pertinent part that “[a]ny prisoner who is sentenced to life imprisonment, who has actually served 10 years and has sustained no charge of misconduct and has a good institutional record, shall'be recommended by [DOC] for a reasonable commutation of his sentence ... to a term for years.”1 Ruggirello sought to compel DOC, by mandamus petition, to make the recommendation required by this statute.

The Florida Constitution vests the power of clemency, including commutation of sentences, in the executive branch.2 *938“The clemency process in Florida derives solely from the Florida Constitution and we have recognized that the people of the State of Florida have vested ‘sole, unrestricted, unlimited discretion exclusively in the executive in exercising this act of grace.’ ” Carroll v. State, 114 So.3d 883, 888 (Fla.2013) (quoting Sullivan v. Askew, 348 So.2d 312, 315 (Fla.1977)). The Governor’s clemency powers are “independent of both the Legislature and the judiciary.” Parole Comm’n v. Lockett, 620 So.2d 153, 157 (Fla.1993). Clemency is wholly separate from the legal requirements for sentencing and for release from imprisonment applied by the courts, the DOC, or the Commission on Offender Review (which oversees parole, conditional release, and other forms of discretionary release). For these reasons, any action related to executive clemency cannot be considered a “collateral criminal proceeding” as that term is used in section 57.085(10).

III.

Ruggirello argues that Florida Parole Commission v. Spaziano, 48 So.3d 714 (Fla.2010), supports his position. The Court there held that “an action challenging the Florida Parole Commission’s determination of an inmate’s presumptive parole release date is a collateral criminal proceeding for the purposes of section 57.085(10), Florida Statutes (2009).” Spaziano, 48 So.3d at 715-16. Parole, like clemency, is an executive function that can result in the early release of an inmate from the judicially-imposed sentence. For this reason, Spaziano arguably supports the contention that an action regarding clemency is a “collateral criminal proceeding” under section 57.085(10). However, we find Spaziano distinguishable for two reasons.

First, parole and clemency are constitutionally distinct. This Court discussed this distinction at length in Turner v. Wainwright, 379 So.2d 148 (Fla. 1st DCA), aff'd, 389 So.2d 1181 (Fla.1980). While noting that clemency rests upon “self-executing constitutional provisions,” which grant unrestricted authority to the executive, this court observed that “[t]he parole power, on the other hand, is reposed only in ‘a parole or probation commission’ which ‘may be created by law,’ ... and which is subject to all laws, substantive or procedural, addressed to it by the legislature.” Id. at 154. In other words, parole is part of the legislative scheme for determining the length of an inmate’s sentence, and is subject to detailed legislative guidance. See Ch. 947, Fla. Stat. As such, it is reasonable to classify an action regarding the determination of an inmate’s presumptive parole release date (“PPRD”) as a collateral criminal proceeding. Because clemency exists outside of the legislatively-and judicially-controlled legal requirements related to sentencing and release from imprisonment, it is not a “collateral criminal proceeding” under section 57.085(10).

Second, even if an action related to executive clemency could be a “collateral criminal proceeding” under section 57.085(10), the specific relief sought by Ruggirello cannot. Ruggirello sought only a DOC recommendation for clemency. Even when DOC makes the recommendation, clemency remains at the “sole, unrestricted, unlimited discretion” of the *939executive. Sullivan, 348 So.2d at 315. Ruggirello cannot show that a DOC recommendation will directly affect the length of time he will actually spend in prison in this circumstance.

Spaziano reasoned that the setting of a PPRD, although not directly affecting an inmate’s sentence, was a necessary first step in an inmate potentially gaining parole, without which an inmate would have no opportunity whatsoever to be released on parole:

While it can be seen that the PPRD is not the final determination of the inmate’s parole release date, we cannot ignore the fact that without this first critical step, none of the other statutory steps may be taken on the path to reaching an effective parole release date for the inmate. Unless corrected, errors in determination of the PPRD, such as consideration of improper aggravating circumstances, will necessarily cause the effective parole release date and, if parole is ultimately granted, the actual release date to be delayed.

Spaziano, 48 So.3d at 723. In the context of a recommendation of commutation of a life sentence to a term of years, we find no similar necessary, causal link between such action and the potential for an inmate’s release. The Clemency Board’s ability to grant commutation of a sentence is not dependent in any way on a recommendation from DOC. Thus, unlike in Spaziano, the recommendation for commutation of Ruggirello’s sentence to a term of years is not a necessary first step to commutation, without which commutation could not possibly occur. Accordingly, Ruggirello has failed to show that, as a result of the action, his “time in prison is directly affected.” Schmidt, 878 So.2d at 367.

IV.

In reaching this conclusion, we recognize that Ruggirello was placed in this position by DOC’s unjustifiable refusal to meet its statutory obligation to recommend him for clemency. DOC must comply with the law. But we cannot rewrite section 57.085 in an attempt to alleviate the harm caused by DOC’s disregard of the law, as DOC’s concession would have us do. For the foregoing reasons, we reject DOC’s concession of error, and we affirm the orders of the circuit court.

AFFIRMED.

WOLF and OSTERHAUS, JJ., concur.


Cases With Similar Vibessemantic neighbors from the corpus


Citator

Cited By

Authorities Cited (11 total)

View all 11 cited authorities →

Full citator, related cases, and AI research tools

Open in FLexlaw